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Planning and Administration Personnel in LocalGovernments. A Pilot Study.Bureau of Labor Statistics (Dept. of Labor),Washington, D.C.Bull-1631Jun 6936p.Superintendent of Documents, U.S. GovernmentPrinting Office, Washington, D.C. 20402 (L2.3:1631,$.45)

EDRS Price MF-$0025 MC Not Available from EDRS.*Administrative Personne3 City Planning, EmploymentOpportunities, Entry Workers, Manpower Needs,*Occupational Clusters, *Personnel Evaluation, PilotProjects, *Professional Occupations, ProgramAdministration, Program Planning, Research Needs,*Technical Occupations, Urban Areas

ABSTRACTTo identify occupations related to the planning and

administration of urban programs and to provide a basis for futureemployment studies and manpower requirements, interviews wereconducted in five cities with officials who had knowledge of planningand administrative activities and manpower. The cities variedaccording to size, characteristics, and location. Several hundredprofessional, administrative and technical job titles were identifiedand condensed into 40 occupation groups, ranging from chiefexecutives to technical level planning aids. Occupational shortagesoccurred mainly at entry levels for city planners, administrativespecialists, and planning aids and assistants. Some efforts toalleviate manpower shortages included increasing salary levels,instituting educational aid programs, substituting personnel of alower grade, and using technician level aids and assistants tosupport high level planning and administrative personnel. Someresearch needs are: (1) development of wide scale occupationalsurveys, (2) development of projections of future manpowerrequirements, and (3) studies of occupational mobility and jobopportunity. Job descriptions, study procedure employment statistics,and a study abstract are appended. (Author/SB)

PLANNINGMD

AMINNIMATIVEPERSONNEL

1111

LOCAL GOVERNMENTS,

A Pilot Study

June 1969

Bulletin No. 1631

U.S. DEPARTMENT OF LABORGeorge P. Shultz, Secretary

BUREAU OF LABOR STATISTICS

Geoffrey H. Moore, Commissioner

U.S, DEPARTMENT OF HEALTH, EDUCATION& WELFARE

OFFICE OF EDUCATIONTHIS DOCUMENT HAS BEEN REPRODUCEDEXACTLY AS RECEIVED FROM THE PERSON ORORGANIZATION ORIGINATING IT. POINTS OFVIEW OR OPINIONS STATED DO NOT NECES-SARILY REPRESENT OFFICIAL OFFICE OF EDU-CATION POSITION OR POLICY.

For sale by the Superintendent of Documents, U.S. Government Printing Of Washington, D.C. 20402 Price 46 cents

Preface

This bulletin presents the results of a pilot study of local government manpowerundertaken by the Bureau of Labor Statistics with the support of the Department ofHousing and Urban Development. The study was designed to identify occupationsrelated to the planning and administration of urban programs and to provide a basis forfurther large scale surveys and' studies of employment and future manpowerrequirements for these occupations. Current manpower problems and future skillrequirements related to planning and administrative activities were also investigated,

The Bureau is grateful to the many urban officials who participated in the studyand provided the information which formed the basis for this report.

The study was conducted in the Division of Manpower and Occupational Outlookof the Bureau of Labor Statistics under the general direction of Neal H. Rosenthal, Thereport was prepared by Gerard C. Smith. Michael Crowley, Joseph J. Rooney, andJanice N. Hedges participated in the interviewing and analysis of information, Guidanceand assistance from the Department of Housing and Urban Development was providedby John Huss, Director of the Division of Urban Manpower Development and byThomas Melone, Director, Urban Planning Research and Demonstration Program.

CONTENTS

Page

Introduction 6

Summary 7

Chapter:

L Planning and administrative manpower in local government 9

Occupations related to planning and administrative activities 9Illustrative staffing patterns of selected localgovernment agencies 10Regional planning Agencies 14

II. Current manpower problems and future expectations 15

Recruiting problems 15

Now jobs are filled 16

Alleviating manpower shortages 16

Future manpower developments 18

III. Future research needs 19Occupational employment surveys 19

Local government occupational records 19Projection of manpower requirements and supply 20

Requirements 20Supply 21

Job opportunities and mobility studies 21

Education and training requirements 22

Appendixes:

A. Descriptions of planning and administrative jobsB. Study procedureC. Available employment statisticsD. Abstract

Tables:

233537

38

1. Illustrative staffing pattern of a chief executive's office 102. Illustrative staffing pattern of a city planning commission 11

3. Illustrative staffing pattern of a model cities agency 11

4. Illustrative staffing patt.. i of a planning research anddevelopment section of a department of public health 12

5. Illustrative staffing pattern of a community action agency 12

6. Illustrative staffing pattern of a fiscal agency 13

7. Illustrative staffing pattern of a housing and urbanrenewal agency 13

8. Illustrative staffing pattern of a parks and recreation department . 149. Illustrative staffing pattern of a regional planning agency 14

10. Planned and actual staffing of a large city planning department 17

INTRODUCTION

Whether the planning and adnii,,;trative capabilities of local governments areadequate to cope with the continuing need for rapid expansion of local governmentservices is an unanswered question. Comprehensive studies that clearly identify theextent and nature of current and anticipated manpower problems in planning andadministration have not yet been undertaken. This pilot study paves the way towardssuch comprehensive studies by identifying:

1, Occupations that entail planning and administrative functions within localgovernments as background information to develop large scale employmentsurveys,

2, Problems urban governments are having in meeting current skill requirementsin occupations having planning and administrative functions and to indicatewhat has been done, what is being done, and what is planned to resolve thoseproblems,

3, Areas where further research is needed in order to develop comprehensiveinformation on the future planning and administration capabilities of localgovernments for use as background for action to assure that future manpowerneeds of local governments will be met,

Occupational analysis in this study is concentrated on professional, administrative,and technical personnel engaged in planning and administrative duties, Excluded fromdetailed analysis were occupations found in operational and service functions, such as

teacher, policeman, and fireman, which are not engaged primarily in planning andadministrative activities.

The study is based primarily on information drawn from interviews with localofficials who have knowledge of planning and administrative activities and manpower,Interviews were conducted in five United States cities that reflect differences in size,geographic area, government organization, the presence of higher educational facilities,and socioeconomic factors. Because only five cities were studied, the informationobtained on manpower problems and other subjects may not be representative of thenational situation and care must be taken in using all of the data presented. (Seeappendix B for more information on selection of the cities and study methods.)

SUMMARY

Within the spectrum of planning and administrationin local governments, some occupations are clearlyadministrative and others entirely planning, However, inmany occupations, planning and administration arecomplementary. For example, the chief of a city'splanning agency is engaged in planning, but he also mustdirect all activities of the agency, Similarly, the chief ofa city's fiscal agency is engaged primarily in

administration, but he also becomes involved in planningfuture financial needs and policies of the city.

Job titles alone cannot be used to identify planningand administrative occupations, Different citygovernments often use the same title to describedifferent occupations. For example, "administrativeassistant" is used by some local governments to describea high level professional who assists the city's chiefexecutive, whereas others use the title to describe anindividual performing clerical duties. Different job titlesalso may be used to describe similar jobs. For example,urban planner and city planner may be identical jobs.

Many workers function as support personnel topersons in professional planning and administrativepositions. For example, draftsmen prepare drawings ofbuildings for use by engineers in planning a major urbanrenewal project. Similarly, social planning analystsobtain information on the characteristics of inhabitantsof an area scheduled to be redeveloped to provide urbanplanners with background data with which to plan forthe physical and social needs of the area.

In thl, pilot study, several hundred professional,administrative, and technical (PAT) job titles wereidentified as having planning and administrative duties inlocal governments. These titles were condensed into 40occupational groups for use in data collection andmanpower analyses activities. The groups range fromchief executives to technician level planning aids.

Manpower Shortages

Local governments are faced with problems ofoccupational shortages, but generally in planning andadministration these jobs do not make up a largeproportion of the job vacancies because they are arelatively small proportion of all jobs. Moreover, a large

proportion of planning and administration jobs are highlevel positions. Typically, these jobs are filled bypromotion from within and, therefore, are staffed withrelative ease. Among planning and administrativeoccupations in the cities studied, the major vacancyproblems are at the entry level for city planners,administrative specialists, and planning aids and

assistants. Other PAT occupations involved in planningthat present vacancy problems are engineer, architect,draftsman, and neighborhood counseling specialist. Theofficials interviewed attributed vacancy problems to ageneral shortage in the supply of workers, and to theinability of cities to attract workers because of lowsalaries, lack of clear promotion opportunities, lowprestige, and civil service impediments such as urrnlisticexamination requirements, residency requirements, andlengthy time lags between application and hiring.

Filling the Jobs

Recruiting is a key factor in meeting manpowerneeds in local governments. However, planning andadministrative jobs are filled both by promoting cityemployees from within and by recruiting from theoutside. The policy of promoting personnel tosuccessively more responsible positions is prevalent inmost city government agencies contacted for this study.Thus, high level administrative positions generally arestaffed by individuals having technical rather thanadministrative training. Recruiting generally is

concentrated at the level for technical personnel, and itis from these entry level positions that the manpower isdrawn to fill local government planning andadministrative needs.

In the cities studied, a number of approaches areused to alleviate manpower shortages. By increasingsalaries and instituting tuition rebate and othereducational aid programs, local governments attempt tomake employment more attractive. In addition, theycommonly substitute personnel of a lower grade orrelated specialty and use technician level aids andassistants to support high level planning andadministrative specialists. Also, recruiting campaigns arebeing expanded and intensified in the cities studied.

Future Needs

Long-range manpower planning is not common atthe local government level, Program and manpowerplanning is keyed to the fiscal year budget, Localgovernment officials, however, expect programs thatrequire personnel in planning, administrative, and relatedoccupations to grow over the next several years. Theyidentified a myriad of factors that can be expected tocause future growth in these occupations. The mostsignificant of these factors is the likelihood that greaterresources will be devoted to improving the cultural,economic, social,. and physical conditions of cities,Consequently, emphasis is and will continue to be placedon city planning, urban redevelopment, and economicaction programs, Federally aided activities, such as theModel Cities Program and other economic opportunityand manpower development programs, are expected tostimulate the need for planning, administrative, andrelated professional and technical specialists.

More Research and Data Necessary

Relatively little of the available manpowerinformation assesses the extent and nature of currentand anticipated manpower problems faced by cities instaffing for urban planning and administrative manpowerneeds. Although this pilot study and other literatureprovide some information on local governmentmanpower statistics and problems, information is notavailable to provide sufficiently detailed data to guidepolicy decisions. Information from this study, however,does point to a number of research needs and provides abasis for designing manpower studies for: (1) Thedevelopment of wide scale occupational employmentsurveys, (2) the development of projections of futuremanpower requirements and supply, (3) occupationalmobility, (4) job opportunity, and (5j education andtraining requirements in planning, administrative, andrelated occupations.

PLANNING AND ADMINISTRATIVE PERSONNEL IN LOCAL

GOVERNMENT: A PILOT STUDY

Chapter I. Planning and AdministrativeManpower in Local Governments

The primary objective of this study was to identifyprofessional, administrative, and technical (PAT)occupations related to planning and administering theprograms and activities of local governments, withemphasis on occupations involved in urban development,Identifying PAT occupations related to planning andadministration was not an easy task. Planning andadministration could not be narrowly defined, nor couldthese functions be easily separated from other activitiesperformed in local governments. Thus, a broad spectrumof occupational specialties were included within thescope of the study.

The following definitions of planning and

administration were used for this study.

Planning Planninc encompasses activities relatedto developing new government programs or improving orchanging existing ones. Planning includes activities suchas those related to planning financial needs, planningphysical requirements (space, equipment, etc.), planningfor social and human resource oriented programs, andmanpower planning. Planning also includes workconducted in coordinating several urban programs; forexample, coordinating housing, welfare, health, and jobtraining programs that are part of the redevelopment ofa depressed area. It encompasses activities related to theanalysis of alternatives, and the making of decisions onthe types of programs to undertake, including activitiesconcerned with obtaining information needed to makethe decisions. Therefore, professional, technical, andadministrative occupations related to planning includeboth high level professional workers, such as citymanagers and urban planners, and technician "levelsupport personnel, such as planning aids and draftsmen.

Administration City administration is the processof managing and directing a city's operations, It rangesfrom the overall management of a city and themanagement of a major agency, department, or bureau,such as a Housing and Urban Renewal Agency, to themanagement of specific operational activities, such aspersonnel, budgeting, or data processing. Therefore,professional, technical, and administrative workers in

administration include not only the chief of an agencyand his assistants, but those workers who are involved inthe administration of specific activities that service thetotal government operation,

Occupations Related to Planning and AdministrativeActivities

City size and the extent of a city's social,

economic, and cultural programs are the majordeterminants of the number and variety of PAToccupations within a city government that includeplanning and administrative duties. Large cities that arepressed hardest by problems of slum neighborhoods anddeteriorating commercial districts, transportationproblems, racial strife, and numerous other problemshave much more complex organization and staffingneeds than smaller, more tranquil communities. The fivecities studied, which range in size from approximately50,000 population to more than 1,500,000, variedgreatly both in the number of agencies and in the typesof occupational specialties employed. In the larger citiesstudied, separate agencies carried out functions such ascity planning, model neighborhood planning, housingand urban renewal programs, and human resourcesdevelopment. In small cities, these activities are generallyperformed by staff members of traditional city agencies,such as the engineering or public works department, thefinance department, or the mayor's or city manager'soffice.

Some occupations identified in this study entailplanning only and some administration only. In othercases, both functions are characteristic of the job.However, administration is usually the primary functionand planning duties are secondary. For example,administration and planning in most of the governmentagencies studied are the responsibility of the agencychief and his assistants, their primary function beingadministration. In addition, city agencies employadministrative specialists, who do not have planningdutiez, to assist in handling the detailed work necessaryfor program administration. Duties of theseadministrative specialists include implementing executive

decisions and collecting and preparing information foruse in determining administrative policies.

In agencies such as city planning commissions ormodel cities' departments, all PAT workers are involvedin planning directly, or indirectly as support personnel.Some workers in these agencies, such as the director ofthe agency, also have administrative duties, Similarly,some city agencies were found to have separate planningsections, and personnel employed in these sections areengaged in planning; only the top staff have

administrative duties, Planning sections within theseagencies generally are staffed heavily with personnel who

are closely related to the agency's function. Forexample, in an urban renewal agency, a planning section

may utilize city planners and engineers. In a policedepartment planning section, personnel generally includepolice officers who have experience in departmentalorganization and operations.

Job titles alone cannot be used to identify planning

and administrative jobs. Many planning and

administrative positions in the local governments studiedhave titles that are built around the title of the agency;for example, director of finance in the financialdepartment, or director of parks for the parks

department. Other titles are related to staff functions,such as assistant to the city manager, or by professionalbackground, e.g., engineers. One can not tell by the jobtitle engineer whether the job entails planning,administration, or technical engineering work.Furthermore, some occupations are titled as

administrative specialties (for example, administrativeassistant) when incumbents may be engaged in clericalactivities rather than high level administrative activities.

Because of the large number of occupational titlesidentified as related to planning and administration theinformation from the five cities was condensed in orderto present it in a logical and easy to understand mannerfor use in preparing or collecting comparableoccupational employment statistics for all the cities. Inthese summary groupings, administrative occupationswere classified separately from planning occupations.Jobs that entail both planning and administrative dutieswere classified according to their primary function,

Administrative occupations were identified (1) byprogram (e.g., health, housing, and urban renewal) or (2)by function (e.g., planning, personnel). Administrativespecialists who cross functional or program lines wereclassified separately. Planning occupations were

classified primarily by generic job title. Summaryoccupational descriptions and detailed lists of titles

identified under each description are presented in

appendix A.

Illustrative Staffing Patterns of Selected Local Govern-ment Agencies

Staffing patterns in 2 large cities having more than500,000 population, illustrate the relationship ofworkers engaged in planning and administrative activitiesto the total staffing of the particular agencies. Staffingpatterns of agencies in the smaller cities were similar butgenerally did not have the variety of occupationalspecialties found in larger cities. PAT personnel engagedin planning and administrative activities ranged fromworkers in a chief executive's (mayor's) office all ofwhom are engaged primarily in administratives activitiesto personnel in planning agencies where all are engagedin planning activities. Other agencies, including regionalPlanning Commissions, employ a variety of PATpersonnel involved in varying degrees in planning andadministrative activities.

The chief executive's office is the primaryadministrative unit of a city government. Dependingupon the form of government organization, the chiefexecutive may be a mayor, elected commissioner, or acity manager. The types of administrative personnelemployed in a chief executive's office are illustrated intable 1.

001.1w,..r

Table 1. Illustrative Staffing Pattern ofa Chief Executive's 1/ Office

Occupation

Total Staff

Administrative Personnel 2/

MayorExecutive Secretary to Mayor -Administration

Executive Secretary to Mayor-Departmental Laison

Assistant to MayorSpecial Assistant for Communications

arid InformationCommunity Development Coordinator

Clerical and Otherkft....... "11111....111,1111111114

Employment

15

6

1

'1

1

1

1

1

9

1/ Mayor-council form of government.2/ Administrative personnel may have planning duties.

Note: See appendix A for job descriptions.

Table 2. Illustrative Staffing Pattern of aCity Planning Commission

Occupation Employment

Total Staff 1/Administrative and Plannin Personnel 2/

Director2/Assistant Director 21Assistant Director for PlanningZoning 3/Associate Director TranspOrtation Planning2/Administrative Assistant//Chief of Planning Sections 4/Chief of Transportation Plan 4/City PlannerEconomic AnalystEngineerPublic Administration AnalystPlanning Education Assistant (Public Relations)StatisticianPlanning Assistant 5/Draftsman and Drafting Aid 5/

Clerical and Other

7765

1

1

1

1

1

51

15431

1

22

2512

1/ Appointed commissioners are not included.2/ Entire professional and administrative staff is engagedin Planning activities,

.2/ Perform administrative duties,4/ Although these Jobs include the title "chief", they entailsupervisory and technical duties rather than administration.§/ Technician level support personnel.Note: See appendix A for Job descriptions.

Chief executives are responsible for the overalladministration and policies of a city, and planningactivities are a major part of their work. Administrativeassistants and executive secretaries aid them in bothplanning and administration. Some assistants may workin a variety of areas such as staffing, policymaking,long -term planning, or city financing; others mayspecialize in one area such as the coordination of severalprograms related to urban development.

City planning commissions have the primaryfunction of guiding all private development andredevelopment and of planning for all publicdevelopment. Commissions are concerned withdeveloping comprehensive plans; zoning; planning forthe improvement and redevelopment of residential,business, and industrial areas; and the location anddesign of public buildings, parks, and rnqmorials. Theyare responsible for submitting recommendations to thecity's chief administrators on matters related to cityplanning.

Planning commissions generally are headed byappointive boards. Board members are often architects,engineers, builders, real estate specialists, attorneys, andother citizens having an interest in and some knowledge

of the goals and purposes of city planning. They act inan advisory capacity and generally receive little or nocompensation. Administration or planning is conductedby the professional director of the planning commissionand his assistants who are in charge of divisions orbranches of the commission. In addition to cityplanners, planning commissions employ engineers,

architects, economists, draftsmen, illustrators, and otherprofessional and technical specialists. Staffing patternsare illustrated in table 2..

Model cities agencies are among the newest andmost unique local government organizations. Theseagencies are responsible for developing plans forpresentation to neighborhood groups that lead tocommunity development program best suited to theneeds of the community. Model cities agencies also actas coordinating centers to bring together other citydepartments and agencies concerned with pltnninq andcommunity development that are related to model cityprograms.

Model cities planning personnel are concerned withall facets of social, economic., and physical conditionsneeding remedial action in target areas of a city. Staffsare generally small but highly professional and includecity planners, government and public administrators, andsocial scientists. Model cities groups may supplementtheir staffs by borrowing employees from otherdepartments that are participating in phases of programdevelopment in their area of responsibility. For example,when working on a phase of model cities planning that isconcerned with health services, personnel from the city'shealth department may be assigned to the model citiesgroup. Tabia 3 presents staffing detail for a model citiesgroup.

Table 3. Illustrative Staffing Pattern of a Model Cities Agency

Occupation Employment

Total Staff 11Administrative Planning Personnel 1/ 9

Project Director, 2/ 1

Assistant Project Dime:or:a/ 1

Governmental AnalystCity Planner 2Social Planning Analyst 2Community Services AssistantAccountant 1

Clerical 2

.1/ Entire professional and administrative staff Is engagedIn planning activities.2/ Perform administrative duties,Note: Si e appendix A for job descriptions.

Table 4. Illustrative Staffing Pattern of a Planning, Research,and Development Section of a Department of Public Health

Occupation Employment

Total Staft 8Administrative and Planning Personnel 1/ 6

Director of Planning, research, and development 2/ 1

Public Health Educator 1

Community Services Assistant 1

Statistician 2Illustrator 1

Clerical 2

31 Entire professional and administrative staff is engaged inplanning activities.2/ Performs primarily administrative duties.Note: See appendix A for job descriptions.

The planning, research, and development section ofthe city's Department of Public Health has as its primaryfunction the planning of programs, such as air and waterpollution or rat control, based on public health

requirements. A major part of this planning includesgathering vital statistics and analyzing data for use inmaking program decisions. The following table illustratesthe types of PAT personnel engaged in planning healthprograms. Administrative, as well as planning duties, areperformed by the director of the unit, and planningresearch is done by the public health education andcommunity services assistant. Statisticians are involvedprimarily in gathering and analyzing data for programplanning. Illustrators design research presentations.

Community action agencies are charged with theresponsibility of receiving and allocating funds providedto local governments under provisions of the EconomicOpportunity Act of 1964, the Manpower Developmentand Training Act (MDTA), and other legislation to carryout programs designed to improve community social andeconomic conditons. In some cities, activities fundedthrough community action agencies are carried out bytraditional local government agencies, such as thedepartment of health or education, or by third partycontractors.

Table 5. Illustrative Staffing Pattern of a Community Action Agency

Occupation Occupation

Total Staff 2,067 Other Professional and Technicol Personnel 450Administrative and Planning Personnel 1./ 43 Medical Consultant Supervilor 1

Executive Director 1 Social Consultant Superviso^ 1

Associate Executive Director 11 Nursing Consultant Supervisor 1

Director of Information Services 1 Team Supervisors (Medical Service) 4Chief of Program Evaluation 1 Health Aid 20Administrative Services Supervisor 1

Fiscal Officer 1 Librarian 5Personnel and Training Officer 1 Recreation Supervisor 2/ 2Program Analyst 1 Street Club Worker 25Coordinator Pre-School Program 1 Case Supervisor 1

Director, Volunteer Service Corps 1 Social Worker 2/ 6Associate Executive Director, Neighborhood Service 1 Case Worker 11Chief of Neighborhood Operations 2 Case Worker's Assistant 3/ 4Neighborhood Dove lopmerit Supervisor 4 Contract Examiner 1

Education and Training Administrator 1 Property and Supply Officer 1

Director, Children's Services 1 Teacher 14Program Director, Children's Services 1 Teacher's Assistant 3/ 15Project Coordinator, Education Services 1 Project Associate (Education Services) 1

Project Assistant Coordinator, Education Services 1 Group Leader Advisor (Employment Programs) 2/ 4Director, Family Services 1 Job Developer 1

Director, Health Services 1 Job Locator 2Manpower Development Coordinator 1 Field Supervisor (Neighborhood Youth Corps) 6Assistant Manpower Development Coordinator 1 Neighborhood Development Counselor 2/ 40Director, Neighborhood Youth Corps 1 Neighborhood Development Assistant 2/ 281Assistant Program Supervisor Neighborhood Youth Corps 2 Accountant Auditor 2Analyst, Public Administration 1 Statistical Assistant (Professional) 1

Administrative Assistant (professional) 3 Other j 1,574

1/ Primarily administrative but also engaged in some planning activities.2/ May have planning duties.3/ Technician level support personnel.4/ includes clerical and service personnel and enrollees of various work-training programs,Note: See appendix A for job descriptions.

Community action agencies are engaged in bothshort-range development programs and long-rangeprogram planning. Planning as well as programadministration generally is done by the top staff, whichincludes the director of the agency, assistant directors,and program directors, coordinators, and analysts. (Seetable 5.) Program analysts and fiscal officers familiarwith principles and practices of program planning andbudgeting systems are key administrative occupationsemployed in these agencies. PAT staffs include a largenumber of social worker oriented specialists such as

neighborhood counselors and work-trainingadministrators.

'Fiscal agencies' primary activities are planning andadministering annual budgets and financial planning forlong-range capital improvement programs. Financedirectors, budget officers, and general management andpublic administration personnel are commonlyemployed in fiscal agencies and have both planning andadministrative duties. The following illustrative staffingpattern provides detail on the types of PAT occupationsemployed to perform the planning and administrativeactivities of fiscal agencies. (See table 6.)

Table 6. Illustrative Staffing Pattern of a Fiscal Agency

Aga*

Occupation Employment

Total Staff 330Administrative and Planning Personnel 1/ 57

Controller 1

Deputy Controller 1

Controller's Accounting DirectorAdministrative Accountant 2Auditor of Disbursements

1Controller's Systems and Methods Accountant

1City Board Accountant

1Budget Director

1Assistant Budget Director

1Administrative Supervisor-Retirement and

Insurance Plans1

Manager=Controller's Data Processing1

Assistant Manager=Controller's Data Processing 1

Administrative Assistant 2Governmental Analyst 42

Other Professional and Technical Personnel 105Actuarial Assists, rt

1

Accountant 68Programer 10Income Tax Investigator 26

Clerical and Other 168

1/ Primarily administrative but also engaged in someplanning activities.

Note: See appendix A for job descriptions.

Table 7. Illustrative Staffing Pattern of a Housingand Urban Renewal Agency

Occupation Employment

Total StaffAc.oninistrative and Planning Personnel

Director-Secretary 1/Assistant Director 1/Superintendent of Housing Operations 1/Assistant Superintendent of Housing OperationsSupervisor of Tenant SelectionjJHousing Manager LIJTechnical Aid - Business Administration 1/Urban Renewal CoordinatorPersonnel OffiCerSAdministrative Engineer 1/Social EconomistCity Planner

Other Professional and Technical PersonnelAccountantData Processing ProgramerPublic Relations Worker (Publicist)Engineer 2/Public Housing Aid 2/Urban Renewal Assistant 2/Community Service Assistant 2/

Other 3/

1/

58037

1

1

1

1

1

11321

1

311

13410

1

2132284

2409

1/ Perform primarily administrative duties.2/ Some may have planning duties.3/ Includes clerical workers, construction workers,skilled craftsmen, building maintenance, and all othermanual and service personnel.

Note: See appendix A for job descriptions.

Housing and urban renewal agenciesIare responsible

for the planning and management of public housing andfor planning urban renewal projects. A variety ofspecialists are needed to carry out the work of a housingand urban renewal agency. At the top are executive andprogram directors who plan, coordinate, and administerthe overall activities of the agency. Other occupationsfound in these agencies include widely divergentspecialties such as city planners and public housingmanagers. Among the occupational specialists that entailplanning and administrative duties are urban renewalcoordinators, engineers, business or publicadministration specialists, and economists. The followingillustrates the types of PAT occupations employed in ahousing and urban renewal agency (table 7).

1/ In some cities, the housing and urban renewalfunctions may be in separate agencies or independentauthorities.

Parks and recreation departments are concernedwith physical, social, and cultural leisure time activitiesfor citizens of all age groups. Beautification of the cityby designing, building, and maintaining parks, squares,and greens is another important function of parks andrecreation departments. Some departments plan,

acquire, build or administer golf courses, swimmingfacilities, zoos, and other types of recreational facilities.Planning and administrative activities in those agenciesgenerally are conducted by the top staff. In addition,recreation counselors, program coordinators and

analysts, and landscape architects may be engaged inplanning for new programs or facilities or improvingexisting areas. The following table presents occupationaldetail for a large city parks and recreation department(table 8).

Regional Planning Agencies

Regional planning agencies are concerned with the

development of broad range plans to guide andcoordinate the growth and development of an area that

may encompass several local governments. In addition to

their primary concern--the development of generalregional development plans--regional agencies also act as

advisors to local governments on the relationshipbetween their planning activities and those of the region,State, or Federal Government, and as reviewing andcoordinating agencies for applications for Federal fundsinitiated by planning units within the region.

Regional planning agencies in the areas studied areorganized as research and planning arms of Councils of

Governments or Inter-Governmental Commissions.

Council members generally include local officials such asmayors, city councilmen, county commissioners, andcity and county planning directors. Executives fromregional transit, port, and housing authorities and similarindependent agencies may be members of Councils ofGovernments and Inter-Governmental Commissions thatmaintain full-time planning staffs to execute workprograms of the parent body and to coordinate the workof consulting groups employed for particular researchand planning projects.

The regional planning commissions or councilsstudied had small, highly professional staffs. The

following table 9 is ,illustrative of the types ofoccupations employed by regional planning groups.

Table 8. Illustrative Staffing Pattern of a Parksand Recreation Department

Occupation Employment

Total StaffAdministrative'and Planning Personnel 1/

General Superintendent of Parks and RecreationAssistant General Superintendent of Parks and

RecreationExecutive Administrator of Parks and RecreationPersonnel OfficerSuperintendent of RecreationAssistant Superintendent of RecreationChief of Landscape ArchitectureLandscape ArchitectSuperintendent of Forestry and LandscapingAssistant Superintendent of Forestry and LandscapingProgram Development AnalystSenior Citizen Program Coordinator

Other Professional and Technical PersonnelRecreation Supervisor 2/Assistant Recreation Supervisor 2/Recreation InstructorCommunity House Supervisor 2/Recreation Facilities Investigator 2/Accountant

Other 3/$110

44227

1

1

1

21

1

1

61

101

1

2001210

13934

1

4215

1/ Primarily administrative but they may engage in someplanning activities.2/ May have planning duties.3/ Includes clerical, maintenance, and service personnel.Note: See appendix A for Job descriptions.

Table 9. Illustrative Staffing Pattern of a RegionalPlanning Agency

Occupation

Total StaffAdministrative and Planning Personnel 1/

Executive Director 2/Assistant Director 2/Transit Program Manager 2/Planner (Urban or Regional)Transit Systems PlannerSocial PlannerEconomist (Regional)Implementation Research SpecialistProgram AnalystEngineer (Sanitary)Programer (Computer)Systems AnalystPlanning Assistant 3/Draftsman 3/Illustrkor

Clerical and Service Personnel

Employment

5140

1

3

15

21

3

1

531

11

1/ Entire professional and administrative staff is engagedin planning activities.2/ Primarily administrative.3/ Technician level support personnel,

Chapter II. Current Manpower Problems and Future Expectations

Recruiting Problems

Several agencies of the local governments studiedwere having d ifficulty in meeting their skillrequirements. However, the number of vacant positionsin planning and administrative jobs were only a smallproportion of the total number of vacancies, primarilybecause planning and administrative positions representonly a small proportion of total employment. Manyadministrative jobs are high level positions that are filledby technical specialists who are promoted from withinand, therefore, pose relatively little problem. Mostvacancies in the cities studied were in clerical, skilled,manual, and service jobs, and in professional andtechnical occupations that are not engaged primarily inplanning and administration, such as nurses and othermedical specialists, social welfare workers, and engineers.

Among planning and administrative occupations,the major vacancy problems identified were at the entrylevel for city planners, administrative specialists, andplanning aids and assistants. Other PAT occupationswhich are related to planning activities and for whichcities experienced difficulties in finding qualifiedworkers were architects, draftsmen, engineering aids andtechnicians, neighborhood counselors, and employmenttraining specialists.

The regional planning agencies contacted for thisstudy had fewer problems in attracting and holdingqualified personnel than did city planning agencies.Reasons given for their greater ability to recruit and holdpersonnel were (1) higher salaries than those paid bycities, (2) the fact that many planners consider workingfor a regional group to be more prestigious andglamourous than working for a city group, and (3)regional agencies employment qualifications and hiringstandards were generally not tied to rigid civil servicerequirements.

In addition to the problems concerning the numberof available workers, many young workers entering PAToccupations in the cities studied have not developed theneeded analytical and communication skills. Trainingand skill in written and oral communications wasmentioned most often as a serious deficiency in theskills young people brought to the job. The lack ofsufficiently developed communications skills was

considered by some administrators to be particularlyacute among accounting and engineering graduates.

Occupational shortages were attributed both to thelack of young persons with training in the needed skills

and to the inability of local governments to attract theirshare of trained personnel, From the informationobtained from this study, however, which of these twofactors was the primary reason for the shortages is notclear. Many officials indicated that they felt the keyproblem was a general shortage of qualified personnel.However, about the same number of local officialsindicated salary and promotion opportunities as the keyproblem in recruiting adequately prepared PATpersonnel. Many of the skills needed by localgovernments also are in demand by other employers and,therefore, cities must compete for workers with privateindustry and Federal and State governments. If salariesand promotion opportunities in local government arenot competitive, young persons will not be attracted tolocal government jobs. However, the PAT occupationswhich have the greatest shortages--nurses and othermedical specialists, accountants, and engineers--also arein short supply to other employers.2/

Civil service restrictions that impede efficientrecruitment were another important reason underlyingvacancy difficulties. Many of the city officialsinterviewed felt that examinations for PAT occupationsdo not determine realistically who is the best qualifiedapplicant for a particular job. Civil service commissionsadminister examinations and establish lists of eligiblecandidates which may require, for example, that theperson scoring highest in the examination be hired orthat one of the three highest be selecteds./Some officialsinterviewed did not consider these procedures to be themost effective means for producing the most qualifiedjob candidate. They felt that academic achievement andsuccessful employment experience should be weighedmuch more heavily than written examinations in

determining an applicants qualifications.Residency requirements also were cited as

impediments to recruiting. In some cities, for example,employees are required to live within the city, thereby

21 See Occupational Outlook Handbook, 1968.69edition, U.S. Department of Labor, Bureau of LaborStatistics, Bulletin 1550; Health Manpower 1966-76, AStudy of Requirements and Supply, U.S. Department ofLabor, Bureau of Labor Statistics, BLS Report 323,June 1967.

3/ Civil service examinations in some cities arerequired both for entry positions and for pormotion.

excluding from consideration qualified manpower fromoutside the city limits. A few of the officials interviewedfelt that even if residency requirements are waived, thevery fact of their existence keeps some persons fromapplying who might otherwise be interested andqualified for city employment.

Time lags experienced between application andemployment also were cited as reasons that qualifiedapplicants tend to lose interest in and cease to becandidates for city employment. In some cases, weeksand even months passed between the time a personqualified for a job and the time that he actually washired. An administrator of one city's housing and urbanrenewal agency contrasted this with private industrypractices. Referring to accountants as an example, hesaid that although a month or more may pass betweenthe time of examination and employment in the citygovernment, a candidate could be interviewed by aleading manufacturing company located in the city andplaced on the payroll the next day.

Another problem often mentioned as underlyingmanpower shortages was the low level of prestigeaccorded to local governments. According to many ofthe officials interviewed, this negative image of localgovernment employment is caused, at least in part, bynon-competitive salaries with other employers in thearea, the inability of recruiters to make definite hiringcommittments, and residency requirements.

How jobs are filled

Recruitment programs have a major impact on thesuccess that local agencies have in filling jobs. Planningand administrative jobs in PAT occupations in localgovernments are filled by promoting from within a city'swork force and by recruiting from outside. Most highlevel planning and administrative jobs, as well as otherhigh level supporting professional and technicalpositions, are filled by promotion of experiencedpersonnel from within, whereas recruiting from outsideusually is used to fill entry level Jobs. Promotingpersonnel to successively more responsible positions isthe policy of most city government agencies contactedfor this study and is especially prevalent in the moretraditional service oriented agencies such as police andfire departments, public works departments, and publicutilities departments. Because of the practice ofpromotion from within, many top administrative jobsare filled by technical personnel rather than individualstrained specifically as administrators.

Recruiting usually is centralized in the Civil ServiceCommission or the personnel agency of a city, and anumber of different recruiting methods are used by thecities studied for this report. These methods range fromsimple posting of job opportunities on bulletin boards tointensive college recruitment campaigns. The followinglist presents the major methods of recruiting used in thecities studied:

1. Posting of notices in public buildings andwaiting for applications

2. Advertisements in local newspapers3. Advertisements in professional journals4. College recruitment5. Obtaining personal leads from professional

contacts

In the cities studied, various methods of recruitingwere used in differing degrees. The larger cities reliedmore heavily on recruiting at college campuses than didthe smaller cities. All cities posted notices in publicbuildings and advertised in local newspapers. Advertisingin professional journals and personal leads fromprofessional contacts generally were used when trying tofill specific jobs.

Alleviating manpower shortages

Several approaches were used by the localgovernments studied to alleviate manpower shortages.Although all the approaches discussed here were notused by each city government that was studied or by allagencies in any particular city, they serve to illustratehow cities attempt to solve manpower shortageproblems.

Raising the level of salaries was one of the principalmethods used by local governments in an attempt tomake employment more attrdctive. Two of the 5 citiesstudied were currently revising their salary structures. Insome cities, where recruiting difficulties warranted,hiring above the entrance level of a given salary scale waspossible.

College recruiting campaigns also were used to findqualified employees to alleviate shortages. Most cityofficials, although they would like to intensify collegerecruiting, did not have sufficient funds and manpowerto devote to extensive recruitment outside their localareas. However, in the cities studied, an effort is beingmade to expand and intensify recruiting campaigns, andvisits to college campuses, vocational and technicalschools, and high schools are becoming more and more

frequent. One planning administrator who often is askedto speak to graduate city planning students said thatthese visits provided him a good opportunity to meetwith and recruit top notch new graduates for his agency.

Educational and tuition rebate programs have beeninitiated by the local governments studied to help attractnew PAT personnel and to upgrade the skills of currentemployees. Each of the five cities studied had some typeof employee educational program. These programsranged from informal systems of occasionally sending anemployee to a nearby university for coursework to veryformal programs of tuition rebate and specializedin-house training. These programs often reflected activecooperation between the city and local colleges anduniversities in setting up specialized publicadministration and related courses, A number of cityofficials interviewed held part-time teaching positions inlocal junior colleges, colleges, and universities, and someof them were at. ;ve in helping local colleges developurban studies programs particularly 2-year programs inplanning, urban renewal, recreation, and publicadministration, which city employees attended.

Substituting personnel of a lower grade or relatedspecialty in vacant positions is another method used bythe cities studied to alleviate manpower problems. Thispractice is described most clearly by comparing plannedand actual staffing patterns for a city agency. Forexample, the planned staffing pattern for PAToccupations in the city planning department illustratedin table 10 includes city planners, social economists, anddraftsmen. The number and level of these positions isestablished for each fiscal year budget. Hi ,Iver,department officials have the option ofpositions with lower level personnel or related specialtiesas long as salary expenditures do not m ,led thebudgeted allottment for a particular position, In the casepresented in table 10, personnel to fill authorized jobvacancies in the planning department were not available,and less experienced planners were employed;architectural and civil engineers were substituted forplanners, and draftsmen were used in lieu of junior levelplanners. The practice of substituting lower level andrated personnel is used not only to fill shortagepositions but also to make positions available tocompetent personnel who can function effectively in theagency but do not qualify for any of the agency'sbudgeted positions.

The use of technician level aids and assistants aF

support personnel to higher level professionals andadministrators also was practiced by the cities studied.

Table 10. Planned and Actual Staffing Patternof a Large City Planning Department

Occupation Number employedPlanned Actual

Total Staff 57 53

Director of City Planning 1 1

Assistant Director of City Planning 1 1

Head City Planner 3 3Principal City Planner 6 4Senior City Planner 9 8Imtormediate City Planner 9 5Junior City Planner 8 3Principal Social Economist 1 1

Senior Social Economist 1 1

Junior Social Economist 1 1

Assistant Architectural Engineer 0 4Junior Architectural Engineer 0 2Junior Civil Engineer 0 1

Senior Draftsman 2 2Draftsman 5 7Junior Draftsman 0 1

Secretarial Stenographer 0Senior Stenographer 0 1

Stenographer 4 3Junior Stenographer 0 1

Typist 2 0Senior Clerk 2 2Clerk

Total Vacancies SWer 4

However, the officials interviewed during the course ofthe study had mixed feelings about using additionalsupport personnel as a means to alleviate PAT shortagesOn one hand, many officials felt that many of the moreroutine and repetitive tasks done by planners,administrators, and other professional employees couldbe performed by aids and assistants. The advantages ofthis approach include (1) providing more time for higherlevel personnel to attend to professional duties, and (2)providing career opportunities and advancement forlower grade city employees having specialized training.On the other hand, some administrators felt that manytechnician level careers were dead-end jobs, and thelimited advancement potential of these occupationswould cause more problems than they would solve. Onbalance, however, most administrators interviewedconsidered the use of technician level aids and assistantscoupled with adequate training and educational

4/ The use of technician level support personnel isnot onlv a practice for alleviating shortages. Someoccupational utilization patterns have these workers asan integral part of the staff.

assistance programs a positive step toward alleviatingshortages and providing career opportunities for personswho would otherwise be excluded from localgovernment planning and administrative functions,

Future Manpower Developments

Manpower planning in the city governments studiedgenerally was done on a year-to-year basis and, for themost part, was tied directly to the financial budget.Long-range manpower planning was at a minimum. Allthe cities studied were suffering from financial problemscaused by shrinking tax bases and increasing needs forcity services. These problems accompanied by thepossibility of manpower reductions were more on theminds of city officials than were thoughts of long-termmanpower plans. Despite the general lack of long-rangemanpower planning, local officials indicated that thefuture would bring new and expanded programs thatwould require more workers in planning and

administrative occupations, Generally, officials appearedoptimistic that finances for these new programs wouldbe made available, despite their current financialproblems.

Most significant among the myriad of factors thatlocal officials expect to cause future occupationalgrowth is the need to improve the physical, economic,

and social conditions of cities. Emphasis is being placedon urban redevelopment and economic action programs.Federally aided activities, such as the Model CitiesProgram and the Economic Opportunity and ManpowerDevelopment programs, are expected to stimulate theneed for planning, administrative, and relatedprofessional and technical specialists. The need to attackphysical problems, including the rebuilding of slums andbuilding recreation facilities, will increase the need forplanners, urban renewarspecialists, zoning and housingcode administrators, public housing managers, andrecreation and parks administrators. Programs designedto attack social problems, such as social tension, juveniledelinquency, and crime, will increase the need forpersons trained and experienced in social work,psychology, guidance and counseling, and theadministration of job training and other economicdevelopment programs. Economists and social planninganalysts will be needed to collect data and do analysisfor planning economic and social deveolpment programs.

Local government officials also expected increasingneeds for management specialists who have skills andability to use modern program planning and budgetingtechniques to plan new programs and to budget financialresources. Local governments pressed by financialproblems were making increasing use of these specialists,as well as accountants and auditors and financeadministrators,

Chapter III. Future Research Needs

Employment in local governments is growing at arate well above that of the Nation, The Bureau of LaborStatistics estimates that employment requirements inlocal governments will increase by about one-thirdbetween 1966 and 1975, nearly twice as fast as theincrease projected for total employment in the UnitedStates.5/The rapidity of employment growth in localgovernments raises the question as to whether themanpower requirements of local governments will bemet, especially in the areas of planning andadministrative manpower, which also are in strongdemand in other sectors.

Relatively little information is available thatassesses the extent and nature of current and anticipatedmanpower problems faced by cities in staffing for urbanplanning and administrative manpower needs. Althoughthis pilot study and other literature provide someinformation on local government manpower statisticsand problems, information is not available to providedata with the desired reliability on which to guide policydecisions, Information from this study, however, doespoint to a number of research needs and provides a basisfor designing future manpower studies. Some of themost important studies of urban manpower that wereindicated by this pilot study are as follows: (1) Widescale occupational employment surveys, (2) projectionsof future manpower requirements and supply, (3)

studies of job vacancies and mobility patterns, and (4)studies of education and training requirements inplanning, administrative, and related occupations.

Occupational Employment Surveys

Surveys of employment by occupation provide thebasic input to manpower analysis and are one of the keyurban government manpower research needs. Data oncurrent levels of employment provide the base forprojections of future occupational requirements and forestimates of occupational needs that are created by workforce attrition. Also, manpower information, such asstatistics on job vacancies and occupational transfers, aremost meaningful when measured against the aggregateemployment level of the particular occupation beingstudied.

Information on employment is needed on a

continuous basis. Statistics collected on a "one time

5/ Tomorrow's Manpower Needs, U.S. Departmentof Labor, Bureau of Labor Statistics, Bulletin 1660,February 1969.

only" basis do not provide the information on thedynamics of changing employment. Attesting to theneed for and use of a continuous flow of employmentdata are the annual surveys of scientific and technicalemployment in private industry conducted by theBureau of Labor Statistics, the annual data on teacheremployment collected by the Office of Education, andannual records of employment of several medical

occupations compiled by professional associations,

Because of these annual data, these occupationsprobably are the most studied of the Nation's manyoccupations and, thus, more information is available toplanners to develop comprehensive programs ofeducation and training in these fields,

This pilot study provides the basic framework forcollecting occupational data for planning and

administrative manpower in local governments. The nextstep is to use the occupational classifications developed

from this pilot study to conduct surveys of occupational

employment

Local Government Occupational Records

Centralized employment records are kept by thelocal civil service commission or central personnel officein 4 of the 5 cities studied. Each of these four cities altohas a formal occupational classification system

containing written job descriptions for each occupation.In the fifth city studied, the smallest one, occupationalstatistics are available through centralized social securityrecords maintained by the budget office, but written jobdescriptions are not available. In general, the followingbasic employment data can be readily provided bycentral employment records: (1) Total city employment;(2) employment by occupation; and (3) employment byagency.

Some types of employment data may be difficultfor local officials to provide; for example, crosstabulated information, such as occupation by agency,generally is not readily available at a central source,despite the great importance of this type of data tomanpower analysis. In many cases, listing cross tabulateddata would require considerable work on the part oflocal governments before such material could be madeavailable. However, some types of data may be readilyavailable in individual agencies rather than at a centralsource.

Central personnel agencies do not maintaininformation on occupation by function; for example,occupational records do not contain information on the

number of engineers engaged in planning oradministrative functions, To develop quantitative data ofthis type, definitions or specific functions would have tobe provided to agency officials who have detailedknowledge of the functions performed by each PATworker in their individual agencies, and these officialswould have to revicw each job and place it in the properfunctional classification. Most of the local officialsInterviewed said that they could provide this type ofinformation, although they indicated possible difficultiesin cases where employees cross functional lines.

Data on age, sex, educational attainment, and othercharacteristics of workers by occupation are not readilyavailable from central employment records. OfficialsInterviewed said that this type of information usually is,contained in each employee's personnel folder, but forall practical purposes, it could not be withdrawn forsurvey purposes. Central records, however, could be usedfor selecting samples of employees, by occupation, forinclusion in studies of these type of data, as well as forstudies of job satisfaction and occupational mobilitypatterns.

Local personnel officials did not forsee majordifficulties in providing occupational data for surveypurposes, especially data available from central records,However, to compile useful data, standardizedoccupational definitions are essential. Job descriptionsused by local government personnel departments or civilservice agencies vary from city to city and, therefore, jobtitles for workers who perform exactly comparableduties may not be the same. In one city studied, the title"planning assistant" was used for the entry level job inprofessional city planning work; in another city, thesame title was used for a technician level assistant

engaged in drafting work needed to develop city plans,

Projections of Manpower Requirements and Supply

Development of manpower plans and programs relyheavily on projections of occupational requirements andsupply. Policy makers should have information onoccupational requirements and supply to judge ifsufficient manpower will be available to conductefficiently a specific program. Educational planners needoccupational supply and demand projections as

background data to guide them in developing programsto suppert education in particular fields of study.Studies of occupational supply and demand mayindicate, for example, how the mix of education grantand student loan programs should be distributed, orwhat new curricula should be added in existing schools.

Manpower planners in local governments also mustconsider their needs in relation to those of otheremployers, since engineers, accountants, and otherprofessional and technical workers are needed by privateindustry and Federal and State governments, as well asby local governments.

Requirements

Projections of occupational requirements in localgovernments have been developed by the Bureau ofLabor Statistics as part of its analysis of manpowerrequirements for the United States. However, theoccupational detail provided by these studies is limited,primarily because of insufficient data on occupationalemployment. in addition, projections of localgovernment manpower data that are included withstudies of the Nation cannot deal fully with thedynamics of manpower requirements that are expectedto result from new programs, Furthermore, studies oflocal government manpower conducted in the past havelacked both occupational detail and detail on primaryfunction such as planning and administration byoccupation.

Projections of requirements for differentoccupations in local governments require differentmethods of analysis, usually because of differences inthe factors underlying the demand for workers in aparticular occupation. Occupational employmentrequirements in local government are affected by a hostof factors. Population and related demographic factorsand the need for urban development programs are veryimportant among the variables that must be considered.Information on changing population, social, and

economic patterns in a city also must be considered tothe fullest extent possible. Analyses of urbandevelopment needs and an assessment of the potentialfiscal capacity, including financing that may be madeavailable through federal programs for various programs,is needed to establish goals and construct modelsdesigned to project future occupational needs.

Technological change also has a major effect on demandfor manpower skills required by local governments.Furthermore, the study of occupational patterns ofspecific agencies is important because of the relationshipbetween the needs for one occupation and those ofanother, for example, planners and planning assistants.

No one technique or set of variables can be usedsuccessfully to project manpower requirements for alloccupations in local governments. The number of urbanplanners required, for example, may be wholly

dependent upon the amount of money that will be madeavailable for planning programs, The need foradministrative personnel, on the other hand, is related tosize of a city, the number of programs or activitiesundertaken, and the organizational and technicalcomplexity of the various programs.

Projections of changes in manpower requirementsby occupation provide only part of the information onthe number of job openings that will need to be filled inthe years ahead. In estimating the total number ofopenings likely to arise in an occupation, considerationof manpower needs resulting from the replacement ofthose who leave is essential. In most occupations, moreworkers are needed yearly to fill positions left vacant bythose who leave the occupation to enter otheroccupations, shift to other employers, or retire or diethan are needed to staff new positions created bygrowth,

Supply

Information on future requirements only providesone side of the manpower picture. Studies ofoccupational supply, designed to be compar=able torequirements studies, are needed to indicate whatexpansion in training is necessary to meet manpowerneeds. A recent Bureau of Labor Statistics report onsupply and demand for health occupations indicates thattraining of physicians for the Nat'on as a whole must beincreased by 80 percent over 1966 levels to meet 1975requiremente/Studies that provide information of thistype should be undertaken for occupations directlyrelated to local governments' manpower needs,

,Entrants into a specific occupation in localgovernment may come from any one of several fields ofstudy. High level administrative assistants in an urban

6/ Health Manpower, 1966-75, op. cit.7/ See Two Years After the College Degree--Work

and Further Study Patterns (NSF 63-26, 1963) for anexample of a major followup study of college graduates.

8/ Beginning in January 1969, the Bureau of LaborStatistics plans to launch an intregrated Current JobOpportunities--Labor Turnover Statistics Program. Thejob opportunities information program is designed toprovide a large amount of industrial and geographic dataand, ultimately, to provide for publication of jobopenings data for the entire nonagricultural economy(including State and local governments) in all majormetropolitan areas.

9/ Excludes separations for death, retirement, andinvoluntary discharge.

renewal agency may be graduates of college or universityprograms in engineering, social work, publicadministration, or other courses of study. Also, in fieldssuch as urban planning, where graduates from urbanplanning curriculums provide the major source ofentrants, some graduates of these programs will notbecome urban planners. Thus, follow-up studies of theemployment of a new college graduates by fields ofstudy directly related to urban planning and

administration, such as graduates of urban planningcurriculums, would be of great use in an analysis ofmanpower supply to local governments..."

Studies that cover the various sources of entrantsinto specific occupations are necessary to assess fullymanpower resources for staffing urban development andrelated local government programs. New collegegraduates are not the only source of entrants toprofessions related to the planning and administration ofurban programs. Many workers are upgraded from lowerlevel jobs or are hired from other employers. Manpowersupply studies should include information on workexperience--including the activity of workers in planningand administration jobs just prior to entering theircurrent jobs, and their activities since leaving school,

Job Opportunity and Mobility Studies

In addition to the basic studies of occupationalemployment and future requirements and supply, muchadditional research is needed to fill in the lack of currentinformation concerning the needs and problems in thefields of urban government manpower. Job opportunitystudies on a broad scale are needed to provide

information on the specific occupations that are

persistently difficult to fill and on the magnitude ofoccupational shortage.uStudies of workers who leavelocal government employment are needed to provideinformation on why local government employees leavetheir jobs. Information obtained during the interviewsindicates resignations9/accounted for about one-half tothree-fourths of employees who left local governmentservice in the cities that were studies. According toinformation obtained by local personnel offices duringexit interviews, lack of upward mobility was the primarymotive for resignation. Other reasons for leaving jobs,such as health, return to school, poor workingconditions, and leaving the city, were cited much lessfrequently than "to take a better job". Departmentheads and other officials indicated low salaries and thelack of promotion opportunities as prime causes of

employee resignation; however, specific studies areneeded to provide detail on the extent and nature ofturnover problems.

Education and Training Requirements

Information also is needed on the education andtraining requirements for occupations related to theplanning and administraticn of urban developmentprograms. Comparative studies of education and trainingrequirements in various cities would provide information

on the skill requirements needed by personnel involvedin local urban and community development argivities.This information would prove valuable for di velopingbasic and remedial education and training programs toprovide competent urban development personnel and toupgrade the skills of currently employed localgovernment personnel, Information on education andtraining requirements also would be useful in assessingthe potential for creating new and stren'gthening currentprograms for developing and using technician level aidsand assistants to support professional workers in keyplanning and administrative positions.

Appendix A, Descriptions of Planning and Administrative Jobs

This appendix presents descriptions of professional,administrative, and technical jobs that have planning andadministrative duties and are found in localgovernments, Because of the great number of jobdescriptions that were found in the 5 cities studied, thejobs first were grouped and then summary descriptionswere prepared. Each description developed for thisappendix includes information on planning and

administrative duties and general education orexperience requirements. To help identify the specificjobs that Are encompassed by each description, a list ofjob titles follows each description.

Jobs in which the duties are primarilyadministrative are presented separately from those thatare primarily planning. Administrative occupations weregrouped either by program (health, housing and urbanrenewal, public works) or by activity (personnel andfinancial). Those grouped by program generally arefound in one agency, whereas those grouped by activityusually, are found in several agencies. Some

administrative jobs could not be classified in this mannerbecause they encompass several activities and are foundin several agencies; these occupations are presentedseparately under a single job description.

Top officials of a city agency may be identified asdirector, chief, superintendent, executive director, or byanother common title. In the job titles presented here,the term director is used to identify these officials,except in cases where one specific title is very common,for example, Chief of Police.

Assistants to directors of agencies are encompassedin the summary job descriptions, although specific jobtitles are not presented in the lists that follow eachdescription. Assistants include titles such as assistant orassociate director, assistant bureau chief, assistant

division chief, and assistant superintendent. Assistantdirector ,of planning is not listed, although his dutieswould fall in the description of planning administrators.

Most planning jobs are listed by generic job name,e.g., architect, civil engineer, systems analyst. However,all architects, all engineers, and all systems analystsemployed in a city are not necessarily engaged inplanning. An engineer, for example, who prepares plansfor a new waste disposal plant is engaged in planning,but an engineer in charge of highway maintenance is notinvolved in this function.

Administrative Occupations

CHIEF EXECU7IVES are responsible for overallcontrol of a city's agencies and are concerned withmatters such as day-to-day administration, long-termplanning, financing city operations, and staffing,Assistants work closely with the chief executive andrepresent him in meetings and conferences with othergovernment officials and representatives of privateorganizations and citizens groups.

Titles identified:

City ManagerCommissionerMayor

COMMUNITY ACTION AND MANPOWERDEVELOPMENT ADMINISTRATORS direct and planprograms designed to promote the social and economicwelfare of disadvantaged city residents. May be

concerned with manpower and career development,social development and home services, communitydevelopment and neighborhood services, educationalprograms, medical and dental health programs, or anyother activities that contribute to the social andeconomic needs of people. Requirements generallyinclude graduation from a university or college withspecialization in fields such as vocational education,personnel administration, guidance and counseling,social science, business or public administration or arelated field, and experience in employee training,vocational guidance, or social work administration.

Titles identified:

Chief of Program EvaluationDirector:

Children's ServicesFamily ServicesHuman Resources DevelopmentManpower Development ServiceNeighborhood Youth CorpsVolunteer Service Corps

Employment Project AdministratorExecutive Director - Community Action Agency

Executive Director - Neighborhood Services

In-Service Training Program Coordinator

Manpower Development CoordinatorOn-The-Job Training Project Administrator

Project Director - Human Resources Development

Supervisor of Community Action CenterOperations

Work Training Program Administrator

COMMUNITY RELATIONS ADMINISTRATORSdirect and plan all or part' of the activities of a city'sequal opportunity program. General educationalrequirements are graduation from a university or collegeand experience in personnel administration, civil rightsprograms, intergroup or labor relations, or communityorganization activities.

Titles identified:

Administratorcommunity RelationsDirector of Community RelationsDivision Chief (Community Relations)Secretary-Director-Commission on

Community Relations

DATA PROCESSING ADMINISTRATOR is

responsible for directing and planning activities andoperations of a city's data processing unit. Generallyrequires a university or college degree with specializationin business administration, accounting, statistics, orengineering, and experience in analyses and developmentof systems, methods, and procedures related toelectronic data processing.

Titles identified:

Chief, Bureau of Data ProcessingData Processing Operations SupervisorData Processing SupervisorEDP Systems ManagerManager of Controllers Data Processing

ECONOMIC DEVELOPMENTADMINISTRATORS direct and plan activities of a city'seconomic development agency primarily concerned with

promoting development and expansion of commercewithin a city. Generally requires a university or collegedegree, and experience in a government, business, orcivic organization concerned with industrial development.

Titles identified:

Coordinator of Industrial and CommercialDevelopment

Director--Advisory Committee on SmallBusiness

Director of Economic Development

FINANCIAL ADMINISTRATORS formulatefinancier policies and direct and plan programs such asbudgeting, financial accounting, assessment, collectionof taxes, disbursement of public funds, purchasing andwarehousing of supplies and equipment, and relatedactivities of a financial nature. May be employed in theprimary fiscal agency of the city or in other agenciessuch as urban renewal or welfare. In general, theeducational requirements for positions in financialadministration include a university or college degreewith specialization in public administration, accounting,or business administration. Some positions require aCPA.

Titles identified:

Administrative AccountantAuditor and Budget OfficerBudget DirectorCapital Accounting SupervisorChief AccountantChief, Bureau of Accounting OperationsChief Bureau of Budget and Management

Research

Chief of Fiscal and AdministrativeServices

Chief Purchasing AgentCity AuditorCity ControllerCity TreasurerCommissioner of Purchases and SuppliesCollectorControllers Accounting DirectorControllers Systems and Methods AccountantDirector of AssessmentsDirector of Purchases

Fiscal OfficerGeneral and Capital Accounting

SupervisorPrinciple Auditor

HEALTH ADMINISTRATORS direct all or part ofthe activities of a city's health department and healthcare facilities. The many health programs in localgovernments require administrators with diversebackgrounds. Many administrative specialties in thepublic health field require a license to practice medicineor a doctorate in science or public health, Others requiregraduation from a college or university withspecialization in fields such as life sciences, sanitaryengineering, or public or business administration. Manypositions require specific knowledge of one or morehealth specializations.

Titles identified:

Administrative Health OfficerCommissioner of HealthCoordinator of Alcoholism ProgramsDirectors of Bureaus, Divisions,

Programs, and Facilities:Administrative ServicesAir Pollution ControlBio-StatisticsCommunicable DiseaseChild Health ServicesCommunity SanitationDairy Farm InspectionDay CareDental CareEnvironmental HygieneFlood ControlFood Plant InspectionFood ServicesHealth Administrative ServicesHealth InformationHospitalsHospital and Medical CareHospitals, General ServicesHospitals, Maintenance ServicesIndustrial HygieneLaboratoriesMeat ControlMedical and Public Health ServicesMedical DirectorMental Health Services Clinic

Milk Plant InspectionNursingNutritionPublic Health NursingPublic Health UnitRodent ControlSanitarian TrainingVital Records

District Superintendent of Public HealthNurses

Hospital AdministratorHospital Business ManagerHospital SuperintendentMeaical Research Chief (Project Director)Medical SuperintendentPublic Health EngineerSanitary Engineer Health InspectionSupervisor of Hospital Investigation and

CollectionSupervisor of Public Health Education

HOUSING AND URBAN RENEWALADMINISTRATORS direct activities performed in alocal government housing and urban renewal agency orauthority. Work may involve planning and coordinatingvarious activities of the agency, General educationalrequirements are graduation from a university or collegewith a specialization in business administration4ublicadministration, public housing, social sciences, city orregional planning, or a related field such as engineeringor architecture.

Titles identified:

Administrative Engineer, HousingDirector for Renewal OperationsDirector of:

Community OrganizationDemolition - ConstructionEngineering (Urban Renewal)Planning and ConstructionProgram Development-Housing AgencyProperty RehabilitationRehabilitation Financial Assistance

Director, Urban Renewal and Housing AgencyExecutive Director, Redevelopment AgencyHousing ManagerProject CoordinatorProperty ManagerProperty Rehabilitation Supervisor

Rehabilitation Advisory ServicesSupervisor

Relocation Site ManagerSocial Services CoordinatorSuperintendent of Housing OperationSupervisor of Tenant SelectionSupervisory Redevelopment Land OfficerUrban Renewal Coordinator

LIBRARY ADMINISTRATORS direct and planthe activities of a local public library system, individuallibrary, or library department. Generally requiresgraduation from a professional library program andextensive experience in professional library workincluding library administration.

Titles identified;

Chief of Library DepartmentCity-County LibrarianCoordinator of Major Library ActivityDirector of LibrariesLibrary Associate DirectorLibrary Business Director

PERSONNEL ADMINISTRATORS direct and planall or part of a personnel program for a city or a localgovernment agency. May be concerned with specificpersonnel functions, such as examination programs,investigating, position classification, training, or otheraspects of personnel administration. General educationrequirement is graduation from a college or universitywith a specialization in public, business, or personneladministration.

Titles identified:

Administrative Personnel ExaminerClassification SupervisorEmployee Safety Engineering CoordinatorExamination SupervisorPersonnel Administrative SupervisorPersonnel DirectorSafety CoordinatorSecretary and Chief Examiner, Civil Service

CommissionTraining Coordinator

PLANNING ADMINISTRATORS direct all or partof the activities of a city's primary planning agencies,such as city planning commission or model cities agency

or the planning unit of another agency. Outline andassign projects and review work in progress and uponcompletion, act as advisors for difficult planning projectsand meet with the major, city council, and otherofficials to present information on planning projects.Handle public contacts and business for the planningagency. General education requirements includegraduation from a college or university withspecialization related to city planning. For somepositions, a specialization in the social sciences,

especially economics, engineering, architecture, or publicadministration may be required.

Titles identified:

Chief of Current OperationsChief PlannerDirector, Department of PlanningDirector of:

Master PlanPlanning and Construction (Urban

RenewalResearch and Analysis (Planning)Research and Analysis (Urban

RenewalTransportation Planning

Executive Director, RegionalPlanning Council

Head City PlannerPlanning Research and Development

Director (Health)Project Director - Model

Neighborhood Agency

PUBLIC RELATIONS ADMINISTRATOPS directand plan comprehensive public relations programs for acity government or specific operational units withincity governments. Requirements generally are graduationfrom a university or college and specialization in

journalism, English, and responsible experience in publicrelations work.

Titles identified:

Administrative Assistant - CommunityRelations

Airport Promotions ManagerDirector of Reports and InformationInformation OfficerPlanning Education Assistant (Public

Relaticas)

PUBLIC SAFETY ADMINISTRATORS direct and

plan all or part of the activities of a city's public safety

agencies such as the police department, fire department,civil defense department, or traffic department. Policeand fire administrators generally are promoted from theranks after serving in progressively responsible positionsand do not require any specific educations. Other publicsafety administrative positions often require graduationfrom a college or university with specialization in publicadministration, law, or engineering.

Titles identified:

Police Administration

Chief of PoliceChief I nspectorCommunity Relations OfficerDistrict InspectorHeadquarters SuperintendentJuvenile Bureau SuperintendentPolice Commissioner

Fire Administration

Chief of Fire DepartmentExecutive Chief Fire DepartmentExecutive SecretaryFire Department SecretarySuperintendent of Fire Apparatus

Civil Defense Administration

Civil Defense CoordinatorCivil Defense ExecutiveDirector of Civil Defense

Other Public Safety Administration

Commissioner of Traffic and TransitSafety DirectorTraffic Engineer - Administrative

PUBLIC WORKS AND PUBLIC UTILITIESADMINISTRATORS direct and plan all or part of theactivities of a local government's public works and/or

utilities department. Administrators included in this

category are responsible for activities such as theconstruction and maintenance of streets, alleys, andhighways; operation and maintenance of water supply;

sewerage and sanitation; municipal waste; publictransportation; and the operation and maintenance ofmunicipal buildings. Some administrative positionsrequire graduation from a university or college, oftenwith specialization in civil, mechanical, electrical,chemical, or sanitary engineering.

Titles identified:

Bureau EngineerBureau Engineer, SurveysCity EngineerBuilding Code Enforcement OfficerBuilding SuperintendentChief Division of Community SanitationChief of Water and Sewerage TreatmentChief, Water Systems SupervisorCommissioner of Buildings and Safety

EngineeringCity EngineerDirector, Bureau of:

Licenses and PermitsStructural EngineeringUtilities

Director, Municipal Parking AuthorityDirector of Public Works'istrict Superintendent of Highways

District Superintendent of HighwayMaintenance

General Manager, Department of StreetRailways

General Manager of City-County JointBuilding Authority

General Superintendent, Department ofPublic Works

General Superintendent, Public Lighting andCity Electricians

General Superintendent, SanitationSanitary Sewer DirectorStreet SuperintendentSuperintendent, General Manager and Chief

Engineer, Water

Superintendent of:Building InspectionBuilding MaintenanceBuilding Maintenance and ConstructionElectrical DistributionMotor TransportationOverhead Lines and Cables

Plant Maintenance and ConstructionPower ProductionPublic ServicePumping Plant OperationsRolling StockSewer Maintenance and ConstructionStreet Maintenance and ConstructionStreets and SanitationTransportation OperationsWater Distribution System MaintenanceTransportation District SuperintendentTransportation Marketing and Planning

AdministrationZoning Enforcement Officer

RECREATION AND PARKS ADMINISTRATORSdirect and plan the activities of a recreation and parkssystem. Recreation and parks administrators formulatepolicies, rules and regulations, and devise capitalimprovement and financial plans. General educationalrequirement is graduation from a university or collegewith specialization in recreation, business or publicadministration, landscape architecture, or related fieldssuch as engineering or city planning.

Titles identified:

Director of Recreation and ParksExecutive Administrator of Parks

and RecreationGeneral Superintendent of Parks

and RecreationPark SuperintendentRecreation General SupervisorRecreation SuperintendentSuperintendent of Forestry and Landscaping -

Parks and RecreationSuperintendent of Public Services - Parks

and RecreationSuperintendent of Recreation

ADMINISTRATIVE ASSISTANTS ANDADMINISTRATIVE SPECIALISTS assist departmentheads or other high level program administrators inplanning, policy formulation, program evaluation, publicrelations, and other executive functions. May exercisecontrol over specific functions such as budget orpersonnel. Other common duties include collecting andpreparing information used for determiningadministrative policies; interpreting and implementing

executive decisions; serving as an advisor for establishingnew administrative polices; and conducting research andpreparing reports. Primary requirement foradministrative specialist position is a thoroughknowledge of the principles and practices of public orbusiness management and administrative experience.Some positions require graduation from a university orcol lege with a degree in public or business

administration, or accounting.

Titles identified:

Administrative AssistantAdministrative Service SupervisorAdministrative TraineeAnalyst (Public Administration)Business Manager

Chief of Administrative ServicesGovernmental AnalystManagement AnalystOffice ManagerTechnical Aid - Business Administration

OTHER ADMINISTRATORS, This category

includes all program administrators not specificallydescribed in the preceding statements. Conventionfacilities managers, managers of historical, art, and othercultural centers, and retirement systems managers areexamples of the miscellany of administrators placed inthis category. Generally require specific subject mattertraining or experience related to their program activityas well as administrative ability.

Titles identified:

Airport ManagerBusiness Administrator and Secretary,

Institute of ArtsCafeteria ManagerChief of Weights and Measures

InspectionCity ClerkCommissioner, Recorders Court Jury

CommissionConvention Facilities DirectorConvention Facilities ManagerDeputy Sealer Of Weights and MeasuresDirector, Civic Center CommissionDirector, Historical Commission,

Assistant

Director of ElectionsDirector of Labor RelationsDirector of Minimum Wage CommissionDirector Municipal MuseumInsurance ManagerManager, Convention FacilitiesManager, Municipal AuditoriumMarket MasterMunicipal Trailer Park ManagerReal Estate SupervisorRetirement Systems AdministratorSuperintendent of Zoological Park

OperationsZoo Supervisor

Planning Occupations

ARCHITECTS plan and design physical structuresand organize the services necessary for theirconstruction, Consult with appropriate city officials todetermine size and space requirements and provide themwith information regarding cost, design, materials,equipment, and estimated building time. Plan the layoutof a project and integrate structural, mechanical, andornamental elements into a unified design. Maketechnical studies and inspections and arranges workschedules. Direct the preparation of reports and themaintenance of records. Positions require graduationfrom a university or college with a degree inarchitecture.

Titles identified:

Architect

ARCHITECTURAL TECHNICIANS assistarchitects engaged in planning by examiningarchitectural drawings for accuracy and conformancewith specifications. Make cost estimates of structures.Check materials, structural and mechanical designs, siteplans, and cost estimates submitted by architects andconsultants. Confer with architects, contractors, and cityagencies concerning work in progress. Maintainarchitectural technician positions is high schoolgraduation and experience in examining or drawingarchitectural plans and specifications, cost estimating ofbuilding structures, or project superintendent for a

building contractor. Two year university training inarchitecture or civil engineering often is substituted forexperience.

Titles identified:

Architectural Technician

COMMUNITY RELATIONS WORKERS aid inplanning and implementing equal opportunity programs,Investigate complaints and compile data ondiscrimination practices in employment or publicaccomodations. Evaluate environmental conditionsincluding education, housing, employmentopportunities, recreation opportunities, delinquency,health and income, and prepare analyses and reports onhow they affect community relations, Plan, schedule,and participate in the counseling of socially maladjustedpersons. May secure public assistance support for needypersons and may investiage fradulent assistance claims.Generally requires graduation from a university orcollege with specialization in social science, education,or psychology.

Titles identified:

Community Services AssistantIntergroup Relations RepresentativePublic Aid Worker

COMPUTER PROGRAMERS prepare computerprograms designed to store and process data needed forplanning programs of city government agencies. Defineproblems for conversion to electronic data processingand develop and prepare detailed instructions andnecessary test data to determine the accuracy of theprogram. Prepare detailed operating procedures foroperating personnel and make modifications and

improvements to programs as required. Generally requirehigh school graduation and experience in computerprograming. Some positions require graduation fromcollege or equivalent experience. For trainee positions,ability to achieve a satisfactory score on a programingaptitude test is required.

Titles identified:

Computer ProgramerData Processing Programer

DRAFTSMEN prepare clear, complete, and

accurate working plans and detail drawings forengineering or planning purposes. Make final sketches of

prepared drawings, charts, or topographic maps; checkdimensions of parts, materials to be used, and therelations of various parts to the whole structure. Drawplans of sulylivisions, streets, highways, subways, waterand sewer systems, and other public projects fromsurvey note:,, and make any adjustments necessary ordesired. Generally requires graduation from high schoolsupplemented by college level courses in engineering anddrafting.

Titles identified:

DraftsmanDrafting AidEngineering Draftsman

nine Pi nrep

ECONOMISTS conduct studies to determine theeconomic feasibility of various urban bettermentprograms. Perform research related to population trends,land use, urban renewal programs, future employmentand unemployment trends, and estimates of incomedistribution. Prepare comprehensive reports that presentan analysis and I, *.pretation of the results of research.May speak before civic and technical groups to explainthe results of research programs. May meet withindustrial, business, or civic groups to discuss viewpointsregarding spec i f ic research programs. Requiresgraduation from a college or university withspecialization 0.; economics or related social sciences.Some positions require an advanced degree and/orexperience in the analysis of data related to cityplanning, housing and urban renewal, or a related field.

Titles identified:

Economic AnalystEconomic Research AidSocial EconomistUrban Researcher

ENGINEERING AIDS perform elementary field oroffice tasks in support of engineers engaged in planningfor construction projects. Execute routine tasks in

survey parties and conduct routine inspection of anonprofessional engineering nature. Perform simpledrafting and computing work that does not requireprevious specialized training or experience. Assist incoordinating the work of city forces, contractors, andutility companies on various phases of projects. May act

as rodman or chairman on a survey party. Generallyrequires graduation from high school, preferablysupplemented by experience in an engineering office orwith a survey party engaged in construction projects.

Titles identified:

Engineering Aid

ENGINEERING TECHNICIANS assist in preparingreports, charts, graphs, and tabulations for use in urbandevelopment plans or other planning activity. Performtechnical engineering work of moderate difficultyincluding making computations and plotting information;ram field surveys, preparing maps and plans, andmaking cost estimates. May perform engineering testsusing precision instruments and do other related work asrequired. May specialize in civil, electrical, mechanical,traffic, or other engineering specialty. General

requirement for engineering technician occupations is 2years of college including basic engineering courses orcompletion of a vocational course of study in civil,mechanical, electrical, or traffic engineering, orequivalent experience in engineering related work.

Titles identified:

Engineering TechnicianEngineering Technician - CivilEngineering Technician - ElectricalEngineering Technician - MechanicalEngineering Technician - TrafficEngineering Technician - Water

ENGINEERS (CIVIL) prepare plans, designs,

specifications, and cost estimates for urban developmentand public works construction projects. May act as aconsultant to various city departments concerned withthe construction, demolition, or renovation ofbuildings, roads, sewers, water facilities, or other publicworks projects. May advise the general public andofficials of government agencies on policy, whatresources are available, ordinances, engineeringproblems, and construction costs. Graduation from auniversity or college with a degree in civil structural orrelated fields of engineering generally is required.

Titles identified:

Airport EngineerArchitectural Engineer

Civil EngineerEngineer of InspectionEngineer of SurveysField EngineerProject EngineerPublic Works EngineerStructural EngineerWater System Engineer

ENGINEERS (CHEMICAL) prepare plans andestablish standards for analyses and investigationof problems such as waste disposal, air and waterpollution, radiation hazards, and occupational diseasesfor urban renewal, health, and related planning projects,Make technical engineering surveys, studies, and

inspections, and review and approve plans and

specifications submitted by consulting engineering firms.Graduation from a college or university withspecial ization in chemical, sanitary, or related

engineering generally is required.

Titles identified:

Chemical EngineerHealth EngineerIndustrial Waste EngineerPublic Health EngineerSanitary EngineerWater Pollution Engineer

ENGINEERS (ELECTRICAL) prepare plans andspecifications for a variety of electrical equipmentnecessary for streets and traffic planning. Make costestimates of street lighting, traffic controls and

communication systems installations, extensions, andmodifications. Collect data pertaining to the operationof electrical equipment and electrical installations.

Recommend adoption or rejection of design andspecifications standards. May act as a consultant to cityofficials on electrical engineering problems. Generallyrequires graduation from a college or university withspecialization in electrical engineering.

Titles identified:

Electrical Engineer

ENGINEERS (MECHANICAL) prepare plans forthe installation of mechanical equipment in newfacilities. Check plans, designs, and specifications for

mechanical installations in new construction projects.Investigate and inspect technical mechanical engineeringproblems. Examine plumbing, heating, ventilating, andrefrigeration systeins in construction plans forconformity with the building code. Prepare technicalengineering reports. Employment generally requires

graduation from a college or university withspecialization in mechanical or civil engineering.

Titles identified:

Mechanical EngineerSpecifications Engineer

ENGINEERS (TRAFFIC) plan for theimprovement of street systems to expedite trafficmovement, Investigate traffic conditions and problemsthrough field surveys and study of existing statisticaldata. Determine the layout of traffic signals, and reviewexpressway construction projects, Prepare maps ofproposed traffic structures and develop plans for trafficflow. D et ermi ne detour routing, truck routes,

channelization of traffic, pavement markings anddividers, off-street parking facilities, and other relatedtraffic planning matters. Review street, highway, andexpressway projects under construction to assure

contract specifications are fulfilled. Employmentgenerally requires graduation from a college or universitywith specialization in civil engineering and planning.

Titles identified:

Engineer of ExpresswayEngineer of StreetsTraffic Design EngineerTraffic EngineerTraffic Planning EngineerTransportation Engineer

LANDSCAPE ARCHITECTS plan the landscapingareas to be used as parks or other recreation facilities,

highways, hospitals, schools, land subdivisions, andcommercial or residential areas. Confer with cityofficials, engineering personnel, and architects on theoverall program. Prepare site plans, working drawings,and cost estimates for landscape development. Inspectconstruction work in progress to insure compliance withlandscape specifications, to approve quality of materialsand work, and to advise construction personnel onlandscape features. Employment generally requires

graduation from a college or university withspecialization in landscape architecture.

Title identified;

Landscape Architect

NEIGHBORHOOD DEVELOPMENTCOUNSELORS coordinate, organize, and attempt tostimulate citizen interest and participation incommunity action programs. Promote communityaction programs by making house calls and individual,family and group contacts, and urging participation inthese programs, Contact various organizations on behalfof persons needing services and assist in coordinating theefforts of various agencies serving an individual orfamily. Prepare summaries, analyses, and reports onneighborhood needs and problems, as well as individualcases or investigations. Counsel residents in an assignedarea or neighborhood to improve their capacity forproductive and self-sufficient roles in the community.May speak before groups to acquaint them withfacilities, services, and information available.Employment generally requires graduation from a

college or university with specialization in social science,social work, or vocational counseling. Some positions mayrequire 2-years of college with specialization in socialsciences or other fields related to community services.

Titles identified:

Counselor AidCounselor, Neighborhood Youth CampsNeighborhood Development CounselorNeighborhood Development Supervisor

PLANNING ASSISTANTS compile data to be usedby urban planners in making planning studies.Summarize information from maps, reports, and fieldinvestigations. Trace maps and prepare statisticaltabulations, charts, and graphs to illustrate planningstudies, such as those concerning population,transportation, traffic, land use, zoning, proposedsubdivisions, and public utilities. May conduct fieldinterviews and make surveys of traffic flow; parking,housing, and educational facilities; recreation; zoning;and other conditions which affect planning studies.General requirement for planning assistant jobs aregraduation from a 2-year junior or community collegewith specialization in urban planning or development.

Titles identified:

City Planning AidPlanning AidPlanning Assistant

RECREATION SPECIALISTS plan recreationactivities and coordinate programs and activities withother community agencies such as community action,education, or welfare departments. May work withdisadvantaged or anti-social groups to develop social,cultural, and recreational activities, These positionsgenerally require post high school training in recreationor a related field. For some positions, graduation from auniversity or college with specialization in recreation,physical education, or social sciences is required,

Titles identified:

Group Activities SpecialistRecreation Activities CounselorRecreation Activities SpecialistRecreation DirectorRecreation Supervisor (Various

Recreation Activities)Street Club WorkerStudent Recreation Assistant

SOCIAL PLANNING ANALYSTS perform socialanalysis and planning, such as studying and evaluatingsocial conditions and the agencies and programsconcerned with resolving social problems. Evaluateneighborhood factors by working with social agenciesand indigenous persons. Develop detailed proposals bydocumenting quantitive and qualitative deficiencies inexisting approaches, and proposing methods forameliorating social problems. Evaluate programsinitiated under the Federal Economic Opportunity Actand make recommendations for improvement or change.General educational requirements are graduation from auniversity or college with specialization in social orbehavoriai sciences. Some positions may require anadvanced degree.

Titles identified:

Social Planning Analyst

SYSTEMS ANALYSTS analyze data processingproblems and develop procedures to process informationneeded for planning programs. Develop forms, input and

output documents, and types of files needed forinformation systems, and design computer andtabulating machine and manual data processingprocedures, Employment generally requires graduationfrom a college or university and training and/orexperience in computer programing and systemsanalysis, For some positions, specialization in subjectmatter areas such as engineering, city planning, or otherfields may be required,

Titles identified:

Systems Analyst

URBAN PLANNERS develop plans and programsfor the utilization of land and physical facilities of cities,metropolitan areas, counties, and re!,.-ns, Compile andanalyze data on economic, social, and physical factorsaffecting land use, transportation, parking, and otherurban planning problems and prepare graphic andnarrative reports on data, Confer with local authorities,civic leaders, social scientists, and land planning anddevelopment specialists to devise plans and recommendarrangements of land and physical facilities forresidential, commercial, industrial, and community uses,Recommend governmental measures affecting land use,public utilities, community facilities, housing, andtransportation. The general educational requirement forurban planner positions is graduation from a college oruniversity with specialization in city planning,architecture, landscape architecture, civil engineering, ora related field. Some planning positions may requirespecialization in public administration, economics orrelated social sciences,

Titles identified:

City PlannerLand Use Data AnalystPlannerPlanning AidPlanning TechnicianRegional PlannerTransportation PlannerUrban Planner

URBAN RENEWAL COORDINATORS analyzealternatives and make recommendations on methods,procedures, and criteria to be employed for urbanredevelopment or neighborhood conservation projects.Review relocation plans, financial schedules, and cost

estimates of urban renewal projects for conformity withfederal regulations and the availability of funds. Reviewbids received for items such as site clearance, communityimprovement, or utilities relocation, Follow up oncontract work to see that estimates are not being

exceeded, and that schedules are being maintained.Arrange for sales of excess land and physical facilities.Oversee the preparation of periodic progress reportsrelating to specific urban renewal projects. May presenttalks on the subject of urban redevelopment orneighborhood conservation. Requires graduation fromuniversity or college, preferably with specialization inbusiness or public administration,

Titles identified:

Urban Renewal Coordinator

URBAN RENEWAL WORKERS contact relocationor rehabilitation site occupants to advise them of theirrights and financial assistance available. Implementneighborhood conservation programs by disseminatinginformation and encouraging neighborhood cooperationwith the goals of the program. Consult with propertyowners and residents concerning property rehabilitationproblems and methods, Conduct surveys in urbanredevelopment areas to obtain the data necessary to planthe proper and orderly relocation of residents.Investigate and process moving expense claims. Prepareand maintain records concerning individual properties.Organize and participate in citizen groups and solicitsupport for redevelopment programs. Help determinebeginning and completion dates for each step of an arearedevelopment project. Develop methods and proceduresdesigned to eliminate or overcome problems andexpedite work progress. May act as liason with othergovernment agencies or public service agencies.

Employment generally requires graduation from a

college or university with specialization in public orbusiness administration, economics, or sociology. Forsome positions, 2 years of university work withspecialization in public or business administration orsocial sciences is sufficient.

Titles identified:

Urban Renewal WorkerUrban Renewal Assistant

ZONING INVESTIGATORS review developmentplans for compliance with zoning ordinances. Provideinformation to public concerning compliance with and

interpretation of city plans and zoning codes, Perform experience,

related clerical work. Employment generally requires

graduation from high school and experience in field or Titles identified:

office work related to city planning or zoning,

Supervisory level job may require graduation from a Zoning Investigator

university or college, or equivalent training and Zoning Examiner

Appendix B.

The study is based primarily on informationobtained during interviews with municipal and othergovernment officials responsible for planning andadministrative activities. Valuable information also wasprovided by written materials such as job descriptions,agency staffing patterns, and special reports on jobvacancy and employee turnover, which were provided bylocal officials.

More than 70 government officials wereinterviewed in the five cities studied, includingrepresentatives of chief executives' offices, personneladministrators and specialists, and functional executivesin the departments and divisions that are responsible fora city's programs and activities. Also inc uded in thisgroup were administrators and other representatives ofcounty and regional planning agencies.

Five cities were included in the study. In anattempt to obtain manpower information on as manydifferent types of situations as possible, cities wereselected from 5 broad regions of the United States:Eastern, Central, Southern, Pacific, and Mountain. Thecities selected had differences in population size andgrowth trends, types of government organization, andeconomic and social characteristics, including racialcomposition, income levels, and population density.However, the five cities selected do not reflect a

scientific sample, and the data obtained cannot beconsidered representative of the country as a whole.Three of the cities selected were participants in the U.S.Department of Housing and Urban Development's ModelCities Program, and three had a regional planning agencylocated in the city.

No specific attempt was made to determine thesignificance of different social, economic, ororgan izathinal characteristics on planning and

administrative activities and manpower problems.Nevertheless, the primary factor that determines the sizeand complexity of planning and administrativemanpower needs appears to be the size of the city. Asindicated in the body of the report, the large cities in thestudy were pressed hardest by problems of slumneighborhoods, deteriorating commercial districts,transportation inadequacies, and numerous otherproblems. They had much more complex organizationand staffing needs than the smaller, more tranquilcommunities.Major Characteristics of the Cities Selected

City I is a large city of more than a million

Study Procedure

population located in the Central portion of the UnitedStates. Population has declined slowly in recent years,

The city has a mayorcouncil form of governmentand is a participant in the U.S Department of Housingand Urban Development's (HUD) Model Cities program.

In comparison with other U.S. cities, i.his city has ahigh proportion of nonwhite's and high populationdensity. Median annual family income was higher thanthe average for the United States as a whole ($5,660),but almost onefifth of families in the city had annualincomes under $3,000 in 1959.10/

City I I is a large city of between 500,000 and 1million population located in the Eastern region of theUnited States. Population has declined slightly in recentyears.

The city has a mayor-council form of governmentand is a participant in the HUD Model Cities Program.

This city has a high proportion of nonwhitepopulation and high population desnity in comparisonwith other U.S, cities. Median annual family income wasroughly the same as the average for the Unites States as awhole, and almost onefifth of the families in the cityhad incomes under $3,000 in 1959.

City III is a medium sized city, having a populationof between 250,000 and 500,000, and located in theSouthern region of the United States. Population hasincreased rapidly in recent years.

The city has a majorcouncil form of governmentand is a participant in HUD Model Cities Program.

Nonwhite population as a proportion of total ishigher than that for the United States as a whole.Population density is relatively low. Median annualfamily income was much lower than the average for theentire United States. Almost threetenths of the familiesin the city had incomes under $3,000 in 1959.

City IV is a medium sized city, having a populationof between 250,000 and 500,000, and located in thePacific region of the United States. Population hasincreased moderately in recent years.

The city has a council-managerform of government

10/ Data on income is from the U.S. Census ofPopulation 1960. Although more current data are notavailable for individual cities, a Bureau of CensusReport, Americans at Mid Decade, Series P-23, No. 16,published in January 1966 reported, "family income in1965 showed little evidence of any change in theinequalities of distribution of aggregate income amongfamilies at various income levels."

Nonwhite population as a proportion of the total isonly slightly higher than that for the United States as awhole, and population density is relatively low. Medianannual family income was considerably higher than theoverall U.S. average, and only about one-tenth of thefamilies in the city had annual income of less than$3,000 in 1959.

City V is the smallest city included in this study(population of less than 50,000), and it is located in theMountain region of the United States.

The city has a commission form of government.Nonwhite population is very small and population

density is relatively ir Median annual family income isconsiderably higher than that for the United States as awhole, and only about one-tenth of the families in thecity had incomes of less than $3;000 in 1959.

Interview Procedure

Interviews were conducted with the help of aninterview guide that centered around several basic

questions on the following topics: (a) backgroundinformation on the type of occupational informationavailable in central records, (b) the methods by whichplanning and administration is carried out in the city, (c)methods of identifying planning and administrativeoccupations, (d) recruiting methods and hiring andretention problems, (e) education and training ofworkers in planning and administrative positions, (f) andemployment growth trends. Under topic (a), forexample, the interviewer asked basic questions such as:What type of manpower information is available fromcentral records? How can summary occupationalinformation such as occupational employment by ageand sex be obtained from the records? Under topic (b),interviewees were asked to describe their agenciesplanning and administrative activities as they relate tothe city as a whole, the particular agency or operatingunit, and State, regional, or Federal planning bodies.Under topic (c), specific questions centered aroundidentifying planning and administrative occupations. Theofficials interviewed were asked to list all planning andadministrative occupations and provide detailedoccupational descriptions. Topic (d) centered aroundrecruiting methods and hiring and retention problems.Officials interviewed were asked basic questions such as:

---Hew-eloes-th eeity---agency-reGaaand administrative jobs? Do you have difficulties infilling planning and administrative jobs? In whatoccupations are shortages or hiring problems most

II

prevelant? What steps has the city taken to alleviatehiring problems? Under topic (e), questions were askedabout the education and training of planning andadministrative personnel. Among the questions that wereasked are: Do the curricula of colleges, universities, andother post high school training institutions give newgraduates the necessary skills for planning andadministrative jobs? What specific courses can beidentified as most valuable? Under topic (f), whichcentered on future employment growth expectations,local officials were asked, for example, to identifyoccupations which they expected to grow (or decline)substantially over the net 5 to 10 years. They also wereasked to describe factors that would cause change.Despite the use of the interview guide, the interviewswere not structured rigidly. It was felt that a loosestructure would allow respondents to presentinformation they felt to be most important.

The interview guide was tested in one of the citiesstudied before it was used in the other four cities.During the "pre-test," several factors were discoveredthat helped facilitate the subsequent interviews. Amongthese was that the civil service commission or personneldepartment of the city had written job descriptions forall occupations found in the city government, and thatthese could be sent to Washington to analyze. Primarilyas a result of an analysis of these written job descriptionsthat the categorization of planning and administrativejobs and job descriptions found in appendix A wasdeveloped. Information on the general availability ofdata for .urvey purposes also was supplied primarily bythe Civil Service Commission or Personnel Department.Operating agency officials, however, were more helpfulin providing information on planning and administrativeactivities and related manpower information.

The interview technique used in this study providedvery satisfactory results for this type of study. Theinsights that were gained from the manpower problemsof the cities, as well as the problems of collectingoccupational data in a large scale survey, could only beobtained satisfactorily through personal interviews.Clearly, studies designed to obtain comprehensivestatistics on local government planning andadministrative ma-power will require methods that11.1- grn used in this study. To collectoccupational data, for example, a statistically validsample survey must be designed and formalquestionnaires developed. (See Chapter 3.)

Appendix C. Available Employment Statistics

This appendix presents information on the basicsources of statistics on employment in local governmentsthat are collected and published on a national basis.Other data may be collected by professional associationsand by local governments, but no attempt has beenmade to include data that may be available throughthese sources.

Data on total employment in local governments ispublished monthly by the Bur9au of Labor Statistics aspart of itivmonthly reports on wage and salaryemployment, Each year, the BLS publishes a historicalseries of annual average data for both the national totalof local government employment and for selected Statesand standard metropolitan statistical areas,12/

The Bureau of the Census collects data andprepares reports on employment in State and localgovernments. Data on employment by State and selectedlocal governments and by function (education,highways, police protection, parks and recreation, etc.),as well as total full-time, part-time, and full-time

1 3/equivalent data, are included in annual reports issued bythe Bureau of the Censes. Similar but more detailed dataare available from the 1962 Census of Governments) 4/

Little information on occupational employmentstatistics is available for local governments, The mostcomprehensive data published covers 279 occupationalgroups, sub-groups, and individual occupations collecteCiduring the 1960 decenial census, and these data havemany limitations. The most severe limitations are (1) theconcept of public administration, (2) currentness, and(3) lack of specific detail for key planning andadministrative occupations.

Decenial census statistics are classified in such amanner that occupations in local public administrationcover only part of all local government employment. Inthe census tabulations, statistics are classified intoestablishments defined according to major economicactivity. For example, school systems and statistics ontheir personnel are classified into the educationalservices industry, and medical and health relatedpersonnel are classified in the medical services indust y;therefore, they are excluded from the data on publicadministration.

Local government employment is increasing at avery rapid rate, yet census occupatalf detail is

available only at ten-year intervals. Althoughinformation collected during the 1960 decenial censusprovided some information on the general occupationalpatterns for local governments, it is of little value in

assessing the nature and extent of recent trends inchanging occupational structure. Questions relating tocurrent problems must be evaluated with currentstatistics.

Furthermore, the census occupational tabulationdoes not provide seperate detail for some keyoccupations related to the planning and administrationof urban programs, These occupations are recognizedand classified by the Bureau of the Census, but, fortechnical reasons, are not presented separately, Cityplanners, for example, are classified as one of theadministrative occupations, and in the publishedstatistics are a component of a large group ofmiscellaneous occupations titled Officials and

Administrators, Not Elsewhere Classified, PublicAdministration. Detail for many other occupationssimilarly are lost in the presentation of published statistics.

In addition to the decenial census, data onoccupational employment in scientific and technicaloccupations in local governments was collected forOctober 19631,

6a/s part of the Bureau of Labor Statistics

program of occupational employment statistics. Thesestatistics provided measures of employment forengineers, chemists, and several of the science

occupations and are the benchmark for employment ofthese workers in local governments. However, data ofthis type are needed on a continuing or regular basis, notonly for these occupations bit.- others related toadministration and planning activities.

11/ Employment and Earnings and Monthly Reportof the Labor Force. U.S. Department of Labor, Bureauof Labor Statistics.

12/ Employment and Earnings Statistics for theUnited States 1909-67 (Bulletin 1312.5), andEmployment and Earnings Statistics for States and Areas1939.66 (Bulletin 1370-4). Both are published by theU.S. Department of Labor, Bureau of Labor Statistics.

13/ Employment in 1967 and City PublicEmployment in 1937, Census GE Series, Numbers 3 and4, Annual, U.S. Department of Commerce Bureau of theCensus.

14/ Census of Governments 1962 - Compendium ofPublic Employment, Vol. III, U.S. Department ofCommerce Bureau of the Census.

1{3i -Gensu s -34 -Populatioil-1-960,0,coupation ..Industry, 1963. Final Report PC(2)7C, U.S. GovernmentPrinting Office, Washington, D.C.

16/ Occupational Employment Statistics 1960-66,Bulletin 1579, U.S. Department of Labor, Bureau ofLabor Statistics.

APPENDIX D.

The primary objectives of this pilot study were to(1) identify occupations that entail planning andadministrative functions within local governments; (2) toidentify problems urban governments are having inmeeting current skill requirements in such occupationsand to indicate actions taken or contemplated to resolvethose problems; and (3) to identify areas where furtherresearch is needed. The report is based primarily oninformation drawn from interviews with local officials infive cities of varied size, characteristics, and geographiclocation.

Several hundred professional, administrative, andtechnical (PAT) job titles were identified. These titleswere condensed into 40 occupational groups, rangingfrom chief executives to technician level planning aids. Alarge proportion were high level jobs, typically filled bypromotion from within. Occupational shortages wereidentified mainly at entry levels. The most prominentshortage occupations were city planner, administrativespecialist, and planning aid and assistant.

ABSTRACT

City approaches to alleviating manpower shortagesincluded increasing salary levels and instituting tuitionrebate and other educational aid programs, substitutingpersonnel of a lower grade or related specialty, and usingtechnician level aids and assistants to support high levelplanning and administrative personnel. Efforts also werebeing made to expand and intensify recruitingcampaigns.

Long-range manpower planning is not common inthe cities studied, but local officials interviewedexpected growth in programs that require PATpersonnel.

The most important research needs identified in thereport are: (1) Development of wide scale occupational

employment surveys; (2) development of projections offuture manpower requirements; (3) occupationalmobility studies; (4) job opportunity studies; and (5)

studies of education and training requirements in

planning, administrative, and related occupations.

* U.S, GOVERNMENT PRINTING OFFICE t IRO 0-318-174