VI

MINORITY EMPLOYMENT SKILLS SURVEY

"-Port of Oakland... )

by#

James M. )ewman and JuanThe Civil Servi-ce Department,

F. Lopez,,-City of Oakland;

and

The Institute for Local Self Government

-tl "/ ,, -f !'I

lll

'Q, I J d: -r .:.September, 1968 ,

....- -:% ......

<,, ,2 /2 *

INSTiTUTE Of INDUSTRIALRELATIONS LIBRARY

JUL 9 1970UNIVERSITY OF CAtjrj"NIA

BERKEt*Y- ~~~~~~~~~-;_. '

Statemennt of the Problcm

The Civil Service Departuent, City of Oakland, and the Institute for

Local Self Goveranmt recently completed the Minority trmployce Skills

Survey, in-'the Oakland Port Authority. It was the firet step in an attempt

to determine the potential, &a opposed to Actual achievement, of minority

group people working for the Port of Oakland. Some of the questions this

study attempts to answer are as follows

I. What percentage of the total nunber of minority employees

in the Port have usable additional skills? What are those

skills?

2. What can be done to encourase greater vertical occupational

mobility for minorities within the framework of the Civil

Service Department and the Port?

3* In what kinds of employment are minorities most frequently

found? Why?

4. Do minority employees generally have more or less education

than the specific job requires?

5* Do minority employees feel as though they have had, do have,

and will have a fair opportunity to advance with the City

"of Oakland andlor the Port?

2.

A semi-structuredq open-ended queetionnaire was used by the inter.

viewrs- in a face.towf ace situation. Sixty one minority employees of

the Port were concted and interviewed. One employec was not inter.-

viewed because of extended sick leave and therefore was not included in

this study. The interviewees were encouraged to talk freely without

fears of retribution or reprisals* Information the interviewee desired

to be held cnfidential wa so held. Minority employees at different

employnt levels were interviewed in order to obtain a varied perspec.

tive* for the purposes of this study a minority group member was defined

a one who considers hielf to be a Negro$ MaxicanwAmericans Chineos

Amrican, or Japanes rican

Finding!

.The perctag of the total number of minority employees included

in the study having usable additional skills or training was found to

be 23. The percetage of minority employees having exceptional potential

was found to be 117. (Exceptional potential was defined as displayin

high capabilities for vertical ocupatlional mbility s determined by

the interviewer who questioned the.eployee concerning interests,

ambitions, and pecial abilities or aptitudes). A listing of the individuals

d kinds of usable additional skills and training is found on pages 4 and 5.

3.

Following that is a listing of those determined to have exceptional

potential (page 6). The high percentages indicate that maximum benefits

would be realized from progras directed at 'providing an opportunity for

motLvated and talented persons to advance from low skill entry jobs to

any position available in the Port through both ro-adesig;ed trainina

and educational opportunities.

In comparing the lists of those with additional skills, training,

and potential to the Position File (see Appendix J) it is apparent that

the Port could meet som of its manpower needs through presently employed

minority workers* For example the file discloses a need for five

electricians whilo the Port has three minority employees who have training

and/or experience with electricity. The File also discloses a need for

Junior Engineers. The Port presently has amployed two minority persons

with .tw or mor years of eigineering course Work. With encouragement

from the Port, these Lndividual1 could complete their education and move

into the position of Junior Engineoer Other examples, smlar to those

cited, at. to be found.

2. When considering mthods to increas greater vertical occupational

mobility for minorities within the framwork of the Civil Service Department

the humnizxing concept stands out. When minority employees have contact

with the Civil Service Departmnt it is usuly occasioned by the taing

of a testo As the situation e ts there is no follovkup with the

ployees who have failed, describi the reasons for falling. Perhaps

prewtest or postmtest counseling by the Civil Service Department for all

ployees would be in order. If su* a service were provided, minority

emloyees would benefit most.

4.

* A Listinc~of i"v.Iitl'rvid-3ad Kinds or

i'ort ofOklll d

(Names. of interviewees and department supervisorsincluded in original report only.)

Job TitleDepartment Supervisor

Usable AdditionalSkills orTraining

Semi-S;}killed LaborerJourneyrman levelcarpentry andpipe laying.

Income TaxTruck riv-rr reportingb.

44 797

Semi-Skilled Laborer

Semi-Skilled Laborer

Janitor

SumidSkilled Laborer

Plastering andautomotive repairschool.

Certified SCU3A diver;sub-profc3sional(surveyor) ensineeringtraining while in Army.

One year of bodyand fender program.

i lectricioan school;instructor for oneyear in ground powerunits while in Navy*

Welder

43 743

42 743

34 543

31 753

41 628

Heavy Equipment Operator

Za:i-killed Laborer

College course& inBusinaea Adminiatration;supervisory experienca

SCUBA diver; one year of

college

37 956

26 743

* iMplojyes over ago 45 arc not listed..e,

is

Age PIreacnt!aIary

2*

43 743

3.

4.

5.

6.

7.

8.

9.

Usable or Tr,,Anin-.-.

Jonitor.ALrpor t

Jesnitor-Airport

Jnnitor-Airport

vid0oa and c~lc.Co.>ics

',,oye-r~K of collcu t%-.yerxa oi radio eChcol(p4)tui :ir the

Q year ofl nutc.%= fivedsMechzinictl trri~unin *,

i~Q 5) /i

4 0 553

27 553

Llectronics asnd hyd~raulicaan3itor~ school (2k years).

45 553

Janitor-tArpor tTwo years 4of -.chitna elwopschool (part-timz').

32 585

*

f'11z

*.,

K-l i .*.

K1

10.

11.

12.

L30

14.

.t

6.

t~ W~it b'c4 t>iO7z21 P'oten~ti*1

Port off QO:1st.l .nld

(Names of interviewees and department supervisorsincluded in original report only.

NR^MaJob TitleDclp=tunt Supeorvisor

Junior AG otont Auditor

Semi-Skilled Laborer

,k. La

SemiwSkilled Laborer

Sr. rnSmncerring Aid*

Pata Processor Puch Op.

Engineering Aide.

Servicwiam

AttributewatemtninaPotcno%,ia

cIcka 3 unita bc'oreobtainina DtAo dcrcec

Ccrtificate in Refri-cration and Air Condi-.tionaingeLaxcks 12 umite of can A.Adoroo La Supcarviocoa*

Lack* I year of colleoebefore obtair.ina a B*S.in Civil Lzinaerinslopee to bacoma celf-meploycd and establisha key-punch cervico*

LackQ 2 yearo of colleobofore obtaining a B*Soin civilmLnirnerin&.

Has been in buOinovs forhielf; scientificLutereste

j/ lull profcaional e4ployaca (those with a in of B*S. or B*A.doe*) Vero not included In this 1istinbg

,r

I*

2.

3.

4.

5.

6.

7.

Aac

33

27

331

25

29

37

:!1aI xy

753

743

6I4.. .

664

733

519

683

867

7*

Incentive programs to traln the lowskilled workers would increase

vertical mobility. Onw-thejob teaching awell as on-the-job training

concepts could be expanded upon In the Port. For ea, accredited

courses could be offered in the Port and be taught by employees presently

workig for the Port. Arraements for on-siet classes and on-sit.

could be made. Workostudy program, involving pasrtt work and

partmm Attendance, could be developed at the local j or collegas,

Also, moblity could be reased by offering educationl leaves of

a nce with pay (with no loss of seniority), to be considered a loain

repayable through wrking with the Port For exaple, for every year

employed with the Poat 107 of the original loan would be forgiven until

the xiA of 107 was reachad. Such loans have precedent in th. field

of teach

Greater vertic occuptil mobility would occur vith an increase

ia available entry level ope gs Openings could be Increased by the

restructuring of presently vacant professional and technical positions

allowyng for meaningful ent level positliw.

Hit practices na. tndards should also be re-examined periodi-

cally. Hiniawa qualification, particularly for bardto-fill jobs,

ould be examid In term of their validity and relationship to the

actual sillt and knowledge required to peform a job. Fially, records

should be kept oc thos applicants not accepted in oder to yie how

mdt my they failed to meet requirements.

3.

3. Seventy seven percent (47) of the minority cmployees of the IPort

of Oakland were employed in the capacities of Semi-Zskilled Laborer,

Janitor or Truck Driver. AUI but one of the minority employces

ccx iprising this 77. were Nogro. Two of the minority individuals

(slightly over 3") were employed on a professional level. 'There ware

three minority individuals employed in sub-professional poaitions

These individuals were Oriental (Table I).

The research disclosed an absence of minority employee. (including

no Negroes) at the professional level in the Port of Oakland. In part,

this is th reult of an unequal distribution of educational opportunities

for the minority population generally. It is also the result of a lack of

information regardin openings and/or of hiring practices placing the

minority people at a competitive disadvantage. The lack of information

concerning openings ocurs when the professionals (who are the first to

be aware of openings) inform friends and other professionals of such

openings* Sometis vacancies are filled before opening announcements

are distributed. "Although civil service exams and procedures may be

publicly announced it taes 'being in the know" to keep posted and

#inside ormation' to know when actual opening occur."-i Also, it

is felt that "traditionally, American workers have obtained employment

mainly through personal contact" in both the public and private sector.*V

Since social and occupational integration has been the exception and not

the rule, the minority people have had the fewest influential contacts

JudLth Go enjamin, "Civil Service and the Poor; Som New Developments",New Caeers Davelopmnt Center, New York University, Sept., 1967, p.2./National Coemittee on Employment of Youth, 9,U. s. D*patment of Health, Education, and Welfare, GF0, 1965, p.30*

0

0

0'p.

Title ISenior EngineerAssistant EngineerSr.Engineer AideEngineering AideJr.Acct.AuditorSteno.Clerk (Int.)Data ProcessorChief Airport Jau.Janitor ForemnAirport JanitorPort JanitorJanitreseServicemanSemi-Skilled Lab.Truck DriverPawer Equip. Op.Maintanance Learner

Total

0

x

I..

4)

53

I

;|:.0.4)

0

$42

0Ap

'0O Q

0

SI

0 0

4. c)

to_

2 4 2(f - female)

Typ of Employment and

Minority Croup

Port of Oakland,

1968

Total

Lf if _

226 .______ ____

2 _2f _

3_

20 l

1 ______

I1.1131.

216-223

21311

61

Table I.

90

and therefore the fowest opportunitico to be hired.

A concomitant factor accountinj, for a scarcity of minority peOple

holding professional positions in the Port would be that of increaoed

competition 4mona professional groups for minorLty personnnel. AJ vigorous

recruitment policy lar to that of private industry would erradicate

this factor.

4. In examining the type of employmnt of minority individuals in

relation to level of education achieved, the researcher examined the job

specifications from the City of Oakland. In reading the description and

examples of work for the job of Janitor, it was found that the education

ad experience requirements are "one year of recent full-tiAe paid cx-

perience n c rcital or industrial buLlding cleaning work". No specific

level of formal education is required. In examining the level of education

achieved by the Janitore in the Port of Oakland it was found that 57. (12)

have a high school diploma &ad/or above (Table 1I).

A similar situation regarding the employment of Janitors was found

in the employment of Sami..Skilled Laborers. The education and experience

requirements for a Semi.-Skilled Laborer reads:

Graduation from high school and at least one year ofrecent, heavy, manual labor experience; or completionof the eighthbgrade and five years of recent, heavy,,manual labor experience; or an equivalent combinationof education and experione.o

It wa found that 484 (10) of the Swai-Skilled Laborers had a mini of

high school diplmas with 337 (7) of the tota interviewed having 160

sineter units of junor college or college work.

Title

44

NP4

~90

Senior Lngincer.Asi~stant LuaincerSr. aiearin Aide

LouaierLng Aide

Jr.Accountant AUd.

StenowClerk (Unt.)Data Procoaaor

Chief Airport Jnitor

Janitor ForempAn

Airport Janitor

Port Jnitor

J itrese

Serviceman

Sen-wSkLled Laborer

Truck Xriver

aintc Learner

owr Oiat pr r

Tot

0

4

9.4p14

a44

.94

ri;:j

5A

t04~

7 4 4 7 2 13 3

,A I&9

..4

0%D

.44

,4

ji

14* QZ

8n .^s

94< n ^ Total

7 2 8 1 11 1

3

1

16

I

1

3

1

2

16

2

2

3

21

3

I

61mom

OCCU~atiou0a Titl and Eeucat4ioa MchLevemnt

port of Oakland

1968

Table 11

=- ---T-- -- -_--I

=___ _1__ 1~~~~~___ ___0ii +~~~~~~~~~~~~~~~~~~3.

10.

It seems that the level of educational achievement is hig;h in

relation to the type of employment in which minority individuals are

found. How significant this finding is would have to be qualified by

a similar study of non-minority employees of the Port. It can be

concluded however, that the minority employees of the Port are generally

of a high quality in educational achievemsent. Such high caliber employees

would derive maxim benefits from incentlve programs such as tuition

reimburseent, released time for post-entry training, incentive pay

bouses and other inducements.

5. In analyzing& the realities of occupational opportunities there are

two prime considerations to be exmained. First, what percentage of

minority ealoyees have actually advanced and second, do the minority

employees generally feel that they have had, do have, and will have, the

opportunity to advance. In considering the first of these it was found

that 33T4 (20) of the total lnterviewed have experienced an occupational

ovemt that they consider to be an advancemnt. The majority of

these have been from the job designation of Street Sweeper to that of

Jitor oi SmJ-aSkilled Laborer (Table III). (Vertical moblity was

amwad up by on interviewee thuslyt "Going from Semi-Skilled Laborer

to Truck Driver doesn't look like much to an outsider but in the Port

it's like going from pageboy to senator".) Few of the minority employees

interviewed reported feeling a lack of opportunity resulting from dies.

crimination but rather felt a lack of opportunity resulting from the

scarcity of job openings.

f0

'0

00

'0

Advancedfrom:

Recreation AttendantStreet Sweeper

Janitor

Semiu.Skilled Laborer

Engineering AideWeed Abator

Truck Driver

Blacka th Helper

Junior Engineer

r.w

e4

&0AC4.4 '.4

0 -

'404.,"4

'4

'v4

0

"'4 ;0

)

IV

"4

l W lZt "4 _ >

cz4 ,4 %4

g: s :}

C} O Q kCn C-4 VI U-

$4

4J

'p4Do(8

I.~~~~~~~~~~~~~~~~~~

I.=___ ---~2 _

_I _

Total

1

74

2I

2111

Tota 1 1 1 1 1 1 10 3 1 20

Types of Occupational Mobility (Vertical)

Epewrienced by Minority Employees

Port of Oakland

1968

Table III

lie

Conclusions

This study has disclosed that there are no Noproes or sI.car-;=crsicans

holding professional positions within the Port of Oakland. LIOWCVer, 20T (54)

of the employees working for the rort are Nearo. The aigniftcoace of euch

data is heahtened by the fact that at the present tim* ;more thah 302'6 of

the residents of the City of Oakland are Ncro. The data bucouaa3 alaxring

when considering population projections for the future. Studies indicate

that if present trends continue (with continual inumigratiog of Ulogroes

and outwmigration of whites) the Negro population of Oakland by the year

1985 (projectad population 546,000) will be .. Two queetiono the

study raises are (1) how to bring more minority people (especially Negroes)

into the Port and (2) how to increase vertical xbility of non-professional

employees presently working for thn Port. In order to answer these questions

the following re ondations are sugaested for study and consi&ration:

1. Increase available entry level openingS throuwh the rede..

4igning of jobs* This can be done by ascertaining the

manpover needs, by oxmining and noting the kind and

numbex of positions creatod, budgeted, and filled

(Appedix I). For certain hardwftofill and high

turnover positions a careful analysis comparing the

actual jobs performed to the skills required should be

made to insure that existing job qualifications are

realstlc in light of persistent recruitmet problms.

_^/ stord R*esach Istiut 701 Projects City of Oakland, 1968.

12

2* lantiate targeted recruitment, utilizing the population in the

area served and provide for preferential ccrtification of

eligibles resding in the area.

3* Implemnt an activet vigorous recruitment sizilar to t4hat of

private inddustry. High priority positions for more active

recruitunt would be those of Assistant Engineer and Junior

Engineer.

4. Eliminate unnecer~jary minimum requirements of formal education

and/or ezperience.

S Implemnt a work-study program permitting attendance at an

educational institution.

6* Establish educational leaves of absence with pay. This would

be considered a loan repayable through working with the Port.

7. Plan for on-the-job teaching as well as on-the-job training

for present employees.

8. Accumlate data on applicants not accepted in order to follow.

up and determine how and why they failed to meet requirements.

This would allow Linnvation in personnel practices based on

analysis and evaluation.

9. Begin protest and/or post-test counseling by the Civil

Seryic. Department for all ployees.

10. Structur* toots on general poten and performce not on

academiC achiment.

/See Albert H. Aronsoa (Director of State 1Lerit Systemss Department ofHealth, EducaUon and Wclfare) "Capacity, Credentials, and Careers"IInstitute for Local Self Goverment, berkeley# March 1968, p. 14.

0

13.

11. Pay antry level ualarioa that art abovu poverty criteria.

12.* Edimirta an arrest record as 8 disqualiftcation ar-d

substitute a conviction record.

With the ioplementation of the preceding, recomeandations, a ore

fluid systsm of occupatiowal -as cent could become a reality.

0

Appemdix I

14.

PORT OF OAKLAND POSITION FILE

July 31, 1968

Occupational title1 Entry Salary c2 B3 F4

Administrative Secretary 655 1 1 1

Airport Clerk 655 1 1 1

*Airport manager 1544 1 1 1

Airport Serviceman 693 35 35 29

Airport Telephone and Teletype Operator 488 9 9 4

*Airport Traffic Representative 1085 1 1 1

Assistant Airport Manager 1247 1 1 0

Assistant Chief Engineer 1650 1 1 1

Assistant Engineer 904 13 13 5

*Assistant Executive Director 1750 1 1 1

Assistant Manager, Properties Department 1131 1 1 1

Assistant Mechanical and ElectricalEngineer 904 3 3 1

*Assistant Port Attorney 2000 1 1 0

Assistant Terminal Superintendent 786 1 1 0

*Assistant Traffic Manager 867 1 1 0

Associate Engineer 1070 3 3 0

* Asterisk designates the position is exempt from City of OaklandPersonnel Department selection procedures.

1. Temporary and/or part-time positions were not included.2.C Indicates the number of positions created.3.B Indicates the number of positions budgeted.4JF Indicates the number of positions filled.

Entry Salary C 13 F

Associate Mechanical and ElectricalLngineer

Automotive Equipment Mechanic

Automotive Serviceman

BlacksmitheWelder

Building Maintenance Engineer

Carpenter

Chief Airport Janitor

Chief Airport Serviceman

Chief Building Maintenance Engineer

Chief of Field Party

Data Process Punch Operator

Deputy Port Attorney I

Deputy Port Attorney-II

*Director of Aviation

*Director of Fiscal Affairs

*Director of Maritime Activities

Dock Office Clerk

Duplicating Equipment Operator

Electrical and Mechanical Engineer

Electrician

Electronic Computer Console Operator

Electronic Computer Programer I

Engineering Aide

*Executive Director and Chief Engineer

15.

1070

693

577

797

743

743

646

753

956

904

488

900

1400'**-'

1695

1590

1695

683 r

523

1415

831

553

655

610

2500

1

6

5

1

7

10

1

10

1

2

1

I

.1

1

1

1

5

1

1

11

I

1

8

1

6

5

10

7

10

1

10

1

2

1

1

1

1

1

1

5

1

1

11

I

1

8

1

1

2

2

1

7

3

1

9

1

2

1

1

1

1

1

0

0

1

0

6

I

0

6

1

Heavy Equipment Mechanic

Intermediate Accountant Clerk

Intermediate Clerk

Intermediate Stenographer Clerk

Intermediate Typist Clerk

Janitor

Janitor Airport

Janitor Foreman

Janitress

Junior Accountant Auditor

Junior Engineer

Junior Mechanical and ElectricalEngineer

*Legal Stenographer

Maintenance Learner

*Manager Properties Department

Painter

Plumber

Port Construction Inspector

Port Equipment Maintenance Foreman

*Port Field Representative

Port Maintenance and ConstructionSupervisor'

Port Maintenance Foreman

Port Messenger and Clerk

Port Operations Clerk

Port Properties Representative

Entry Salary

855

516

495

495

461

495

495

495

*495

673

808

808

569

350

1695

733

879

808

904

970

970

843

516

673

673

16.

C

3

6

9

13

13

3

21

3

2

2

8

I

3

10

1

10

4

4

1

2

5

1

2

1

B

3

6

9

12

13

3

17

3

I2

2

8

I

3

10

1

10

4

4

I

1

2

5

1

2

1

I

6

3

10

4

3

19

3

2

2

1

0

3

3

I

7

2

1

1

1

2

3

1

2

1

Port Publicity Assistant

Port Purchasing Agent -

Port Supervising Engineer

Port Traffic and Tariff Clerk

*Port Traffic Representative

Power Equipment Operator

Properties Technician

Records Assistant

Records Supervisor

*Relief Airport Serviceman

*Relief Reservation Clerk

Reservation Clerk

*Secretary of the Board

Secretary-S tenographer

*Secretary to the Executive Director

*Secretary to the Port Attorney andSupervising Legal Secretary

Semi-Skilled Laborer

Senior Accountant Auditor

Supervising Accountant Auditor

Senior Engineering Aide

Senior Mechanical and ElectricalEngineer

Telephone Operator and Clerk

*Terminal Superintendent andTraffic Representative

*Traffic Manager and Manager, MarineTerminal Department

C

2

1

3

3

4

2

1

2

4

10

I

5

1

Entry Salary

593

891

1415

723

879

855

904

523

610

523

266

461

1216

569

754

808

664

984

1131

693

1247

461

808

1415

1

55

1

2

1

2.

B

2

1

3

1

3

.4

1

1

1

1

3

10

I

5

1

1

55

1

1

2

1

2

F

0

1

1

1

1

4

1

1

1

1

9

1

3

1

1

38

0

1

1

1

1

1 1 0

1 1 0

17.

,0

Truck Driver and Laborer

Utilities Foreman

Weed Workman

Entry Salary

713

930

215

TOTALS:

18.

C

8

2

12

410

B

8

2

12

410

6

2

9

264

Appsdix II

350_375376_400401_425

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o~~~~~~~~~~~~~~~

00

P tt rt 0w ¢ t " tt > " n n XX t--w (V~

b~~~~~~~~~~~~~~~~~~2- - Salary

go0ft

too01%

co 0t-o-#

996

Appendix IXI

0

%* %D %O 4.0 %O %O %O %O 0~~~~~* ;

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