Ask the Scholar
Document scope · 1 page
Scholar
Ask about this object, its catalog metadata, its source description, or the page inventory.
For page-specific OCR and visual context, open one of the page chats.
Source Description
This file contains:
Mailing label for George Meader. Handwritten comment "Transition?" beneath label. 1 pg. [Other Document], N.D.
Section 8 tab divider for "1968-1969 Presidential Transaction" by Franklin B. Lincoln, Jr. 1 pg. [Other Document], N.D.
"Study of the Presidency: A Preliminary Outline of Problems and Issues" by Bradley H. Patterson, Jr. Section 8 of "1968-1969 Presidential Transaction" by Franklin B. Lincoln, Jr.36 pgs. [Report], 5/1/1968
Section 9 tab divider for "1968-1969 Presidential Transaction" by Franklin B. Lincoln, Jr. 1 pg. [Other Document], N.D.
Copy of letter from Rose Mary Woods to Congressman George Meader RE: Enclosed transition materials. 1 pg. [Letter], 11/18/1968
Handwritten letter from George Meader to Rose Mary Woods RE: Request that enclosed materials be given consideration. 1 pg. [Letter], 11/13/1968
Letter from George Meader to RN RE: Enclosed Telford document "A Suggested Patronage Program for the Incoming Republican Administration." 3 pgs. [Letter], 11/13/1968
"A Suggested Patronage Program for the Incoming Republican Administration" by Fred Telford. Section 9 of "1968-1969 Presidential Transaction" by Franklin B. Lincoln, Jr. 44 pgs. [Report], 1/12/1953
List of New York Positions. From Section 9 of "1968-1969 Presidential Transaction" by Franklin B. Lincoln, Jr.11 pgs. [Report], 11/22/1968
Cover of the Brookings Publications Checklist of July 1968. 1 pg. [Other Document], 7/1/1968
Scholar Source Context
Document identity
localId
26126477
label
WHSF: Returned, 20-5
core
doc
dtoType
document
citationUrl
pageCount
1
Source metadata
id
26126477
sourceUrl
contentType
document
title
WHSF: Returned, 20-5
description
This file contains:
Mailing label for George Meader. Handwritten comment "Transition?" beneath label. 1 pg. [Other Document], N.D.
Section 8 tab divider for "1968-1969 Presidential Transaction" by Franklin B. Lincoln, Jr. 1 pg. [Other Document], N.D.
"Study of the Presidency: A Preliminary Outline of Problems and Issues" by Bradley H. Patterson, Jr. Section 8 of "1968-1969 Presidential Transaction" by Franklin B. Lincoln, Jr.36 pgs. [Report], 5/1/1968
Section 9 tab divider for "1968-1969 Presidential Transaction" by Franklin B. Lincoln, Jr. 1 pg. [Other Document], N.D.
Copy of letter from Rose Mary Woods to Congressman George Meader RE: Enclosed transition materials. 1 pg. [Letter], 11/18/1968
Handwritten letter from George Meader to Rose Mary Woods RE: Request that enclosed materials be given consideration. 1 pg. [Letter], 11/13/1968
Letter from George Meader to RN RE: Enclosed Telford document "A Suggested Patronage Program for the Incoming Republican Administration." 3 pgs. [Letter], 11/13/1968
"A Suggested Patronage Program for the Incoming Republican Administration" by Fred Telford. Section 9 of "1968-1969 Presidential Transaction" by Franklin B. Lincoln, Jr. 44 pgs. [Report], 1/12/1953
List of New York Positions. From Section 9 of "1968-1969 Presidential Transaction" by Franklin B. Lincoln, Jr.11 pgs. [Report], 11/22/1968
Cover of the Brookings Publications Checklist of July 1968. 1 pg. [Other Document], 7/1/1968
citationUrl
collections
Richard M. Nixon's Returned Materials Collection
Returned White House Special Files
imageCount
1
hasImages
yes
source
import
hasTranscription
no
Source extras
naId
26126477
levelOfDescription
fileUnit
recordType
description
ocrSource
nara-archive
Single page context
seq
1
pageIndex
0
type
document
mediaId
635d93675197955e
ocrText
Richard Nixon Presidential Library
White House Special Files Collection
Folder List
Box Number
Folder Number
Document Date
Document Type
Document Description
20
5
N.D.
Other Document
Mailing label for George Meader.
Handwritten comment "Transition?" beneath
label. 1 pg.
20
5
N.D.
Other Document
Section 8 tab divider for "1968-1969
Presidential Transaction" by Franklin B.
Lincoln, Jr. 1 pg.
20
5
05/01/1968
Report
"Study of the Presidency: A Preliminary
Outline of Problems and Issues" by Bradley
H. Patterson, Jr. Section 8 of "1968-1969
Presidential Transaction" by Franklin B.
Lincoln, Jr.36 pgs.
20
5
N.D.
Other Document
Section 9 tab divider for "1968-1969
Presidential Transaction" by Franklin B.
Lincoln, Jr. 1 pg.
20
5
11/18/1968
Letter
Copy of letter from Rose Mary Woods to
Congressman George Meader RE: Enclosed
transition materials. 1 pg.
20
5
11/13/1968
Letter
Handwritten letter from George Meader to
Rose Mary Woods RE: Request that
enclosed materials be given consideration. 1
pg.
Tuesday, September 22, 2009
Page 1 of 2
Box Number Folder Number Document Date
Document Type
Document Description
20
5
11/13/1968
Letter
Letter from George Meader to RN RE:
Enclosed Telford document "A Suggested
Patronage Program for the Incoming
Republican Administration." 3 pgs.
20
5
01/12/1953
Report
"A Suggested Patronage Program for the
Incoming Republican Administration" by
Fred Telford. Section 9 of "1968-1969
Presidential Transaction" by Franklin B.
Lincoln, Jr. 44 pgs.
20
5
11/22/1968
Report
List of New York Positions. From Section 9
of "1968-1969 Presidential Transaction" by
Franklin B. Lincoln, Jr. 11 pgs.
20
5
07/01/1968
Other Document
Cover of the Brookings Publications
Checklist of July 1968. 1 pg.
Tuesday, September 22, 2009
Page 2 of 2
CONGRESS OF THE UNITED STATE
JOINT COMMITTEE ON THE
ORGANIZATION OF THE CONGRES
GEORGE MEADER
3360 TENNYSON STREET, N.W.
WASHINGTON, D. C. 20015
Transition?
CCHRH:
**ex:
STUDY OF THE PRESIDENCY
May, 1968
A Preliminary Outline of Problems and Issues
Caveat
Even to take up the idea of improving the Office
of the President raises the question: Is there such a thing
as an "Office of the President" apart from the President
who occupies it? Is there "a right way" to be President?
A study of the Presidency should recognize that
the answer may be "no" and in any case will be contested.
Nonetheless, as its minimum assignment, such a study could
and should
a) show what has been happening -- throughout
180 and especially the last 36 years -- to
the concept and functioning of that Office;
b) discuss alternative approaches to the key
issues today (e.g. the war power, coordina-
tion of domestic programs);
c) sum up certain lessons of administrative
effectiveness, applicable at any level; and
d) end up by displaying before future
Presidents and the nation the choices
available and the consequences of choosing.
Bradley H. Patterson, Jr.
2
I. SOME ISSUES IN THE PRESIDENT'S ROLE AS CHIEF ADMINISTRATOR
A. The key dilemma: A singular President and a Plural
Executive Branch
Article II Section I begins "The Executive Power
shall be vested in a President of the United States of America."
This one man, with one body and one brain, is thus in the eyes
of the Constitution, alone responsible for carrying out tens
of thousands of public statutes and for directing the work of
6 million employees. Both statutes and employees are increas-
ing yearly.
Early or late in the study, two questions must be
faced:
1. Is there any limit at all on the number
of statutes, programs and employees
which a President can direct with enough
effectiveness to make elections meaning-
ful?
2. Should the Presidency be multiple?
The answer to both questions is probably "no"
but this then forces examination of all the modes of a
President's Administrator Role.
As preliminary research:
Graph the number of public laws in
effect at the start of each
President's term, beginning in 1789;
3
-- Graph the number of civil and military
employees in the same manner;
-- Graph the federal budget likewise;
B. With respect to some of the Statutes: The
laws assign specific duties to the President.
1. How many are there of these specific
assignments? Make a catalogue.
2. How many have been delegated and to
whom?
3. How many are still undelegated?
4. Of the undelegated assignments, how
many others could or should be
delegated?
C. For All of the Statutes: There is the
President's obligation to "Take Care That the Laws be
faithfully executed.
1. To do this the President needs informa-
tion on how programs are being adminis-
tered, especially advance information
on problems being encountered.
a. From recent history, what are
some notable examples of this
need?
b. What information mechanisms for
producing advance information
been tried? Which have the
greatest promise of effectiveness?
4
C. Is the President used too often
as Ombudsman for the Congress,
Governors, Mayors and the rest?
What is the irreducible minimum
for this role?
2. An unavoidable part of the "Take Care" Role
is the President's ultimate obligation to be
Chief Coordinator in program administration.
With special reference to the domestic sphere:
a. Describe this obligation, with
examples.
b. What can be learned, useful to
domestic program coordination, from
the accomplishments in forging a
national security community over
the past quarter century? What
essential differences?
C. Evaluate (linked with "b" above)
the program coordination role of:
-- Committees (e.g. Cabinet, NSC,
EOC and on down to regional and
local levels e.g. Federal Executive
Boards).
-- Executive Office troubleshooting
task forces (e.g. on Neighborhood
Centers).
5
-- The Bureau of the Budget, OST, OEP.
---- A new unit in the Executive Office.
-- Special White House Assistants and
Staffs (Califano, Bundy/Rostow &
Companies).
-- Interagency information exchanges
(the Vance-Ball Agreement, CHECKPOINT
procedures).
-- Special Agency Centers (NMCC, Operations
Centers, Chart Rooms, Situation Room).
-- Interchange of agency personnel (e.g.
State/Defense/JCS).
-- The Metropolitan Expediter experiment.
-- The reforms proposed in the Inter-
governmental Relations Act.
-- Consolidated Departmental regional
boundaries and offices.
-- Regional Presidential coordinators.
-- Training programs for the bureaucracy
(Executive Seminar Centers, Career
Executive Institute, War Colleges).
d. Another way of looking at it: could the
problem of federal program coordination
be lessened by delegating the operation
of certain federal programs out of the
federal bureaucracy to geographically
6
based units at other levels of our
federal system: e.g.: Neighborhood
Corporations, Cities, Multi-County
Units, Regional Governmental Organiza-
tions, States?
Pros and cons of this approach.
D. For Statutes yet to come: a President may need
new flexibility.
1. To vary tax rates within a given range:
give the arguments pro and con.
2. To vary interest rates within a given
range: give the arguments pro and con.
3. To transfer funds among appropriation
titles or programs: give the arguments
pro and con.
E. The President's Control: Is the Executive
Branch being insulated from him?
The Congress frequently attempts to drive
wedges between the President and his subordinates, vesting
statutory power in the hands of independent bodies or of
long-term officers. Does the nation benefit or suffer from
this?
1. Review this problem with respect to
Departments and Agencies (e.g. the
REA issue of 1959, the Small Business
Administration, terms of office for
FBI, JCS).
7
2. Review this problem with respect to
the Regulatory Commissions: do they
improperly circumscribe the President's
ability to meet his responsibilities?
8
II. SOME ISSUES IN THE PRESIDENT'S ROLE AS COMMANDER IN CHIEF
Article II, Section 2:
"The President shall be Commander in Chief of the Army
and Navy of the United States and of the Militia of the
several States, when called into the actual Service of the
United States;"
The dilemma:* The same singular President, one
body and one brain, also responsible for the actions of
3-1/2 million persons in the Armed Forces -- in their use
of bayonets or megatons -- with shorter and shorter warning
times and with the constant danger of small, far-off crises
escalating into major confrontations.
The basic question: With new gadgetry making
Washington-to-front-line communications easier and easier,
what principles of delegation should a President follow?
As preliminary research:
-- Discuss and if possible graph or
otherwise portray the stages through
which Presidential military communica-
tions have come: from the packet of
letters on board a sailing ship through
telegraph and telephone to today's
facilities.
-- Forecast them ten years ahead.
-- Graph the size of the Armed Forces
beginning in 1789.
*For a discussion of the War Power in the sense of making
and keeping commitments, see Section III.
9
-- Graph the size of the Armed Forces
Budget beginning in 1789.
A. Strategic Crises
1. What are the best estimates as to the
warning time Presidents in the near
future will have with respect to
strategic threats?
2. What do present and future strategic
weapons developments portend for the
variety of Presidential options, the
length of time he may have to choose
and his ability to delay, redirect or
recall weapons once chosen?
3. What new facilities and procedures, if
any, need to be initiated to equip a
President to survive and to command in a
strategic crisis?
B. Tactical Crises
1. What are the factors which tend to force
Presidents to play a personal hand in
tactical national security crises? (There
are at least ten.) Give examples from
recent history.
10
2.
What are the risks a President runs
who feels impelled to play such a
personal hand?
3. What principles should govern the
balance to be struck?
4. What aids and helps should be
developed or enlarged for the President
to make this balance more tolerable?
11
III. SOME ISSUES IN THE PRESIDENT'S ROLE AS CHIEF DIPLOMAT
Article II, Section 2:
"He shall have the power, by and with the Advice and
Consent of the Senate, to make Treaties, providing two
thirds of the Senators present concur; and he shall
nominate, and by and with the Advice and Consent of the
Senate, shall appoint Ambassadors, other public Ministers
and Consuls,
Article II, Section 3:
"
he shall receive Ambassadors and other public
Ministers;"
"The Congress shall have Power
To declare War,"
"
To make rules for the Government and Regulations of
the land and naval Forces. "
The dilemma:
Chairman Fulbright: "You think it is outmoded to
declare war?"
Under Secretary Katzenbach:
"In this kind of context I think
the expression of declaring a
war is one that has become out-
moded in the international arena."
(S Res. 151 Hearings, August, 1967,
page 81)
Chairman Fulbright:
"Would the President, if there
were no [Tonkin] resolution, be
with or without constitutional
authority to send U.S. soldiers
to South Vietnam in the numbers
that are there today?"
Under Secretary Katzenbach:
"It would be my view, as I indi-
cated, Mr. Chairman, that he does
have that authority. I think there
would be others both inside and
outside of the Government who
would not agree with that
yes,
I think it includes the authority
to bomb North Vietnam.' (S Res.
151 Hearings, August, 1967, page 141).
12
A. The President's Power to Make and Keep
Commitments.
1. The Secretary of State should be asked to
prepare a list of all the nations with which we have dip-
lomatic relations and for each one set forth what it
(not we) believes are either formal (e.g. NATO) or
informal (e.g. Israel) U.S. commitments to it which could
involve the use of US armed forces.
2. What are the prospects over the next eight
years that under any of these believed commitments
U.S. armed forces help will be requested?
3. What are the prospects over the next eight
years that any of these requests could be met by peace-
keeping forces other than of the U.S. (e.g. UN, Regional?)
4. Should the new President endorse and abide
by S. Res. 187?* Give a full analysis of the arguments
pro and con. If not, what principles should guide future
Presidents' relationships with Congress with regard to the
use of U.S. Armed Forces in meeting foreign requests for
assistance?
*Text appended
13
B. The President as Negotiator
1. Graph, in terms of hours if possible, the
international bilateral and multilateral conferences (in
the U.S. or abroad) in which the President has personally
participated as a substantive negotiator, from President
Roosevelt through President Johnson. What trend here does
the Secretary of State forecast for the future?
2. Analyze the procedures now used in preparing for,
in "advancing" and in conducting every aspect of a Presi-
dential conference at home or abroad with another Head of
Government with a view to recommending steps to save
Presidential time and energy without degrading his ability
to conduct negotiations effectively.
C. The President as Manager of the National Security
Community
1. Review the arrangements in the national security
community for keeping the President informed -- the respective
roles of the White House Staff, the Situation Room, the Depart-
mental Command/Operations Centers. Examine the possibilities
(and pros and cons) of increased automation, faster data
storage and retrieval, improved communications (especially to
Ambassadors), secure conference television.
14
2. How effectively are Ambassadors acting as
Presidential agents in knitting together the Country
Teams abroad? What further improvements if any are
needed here in the interests of the Presidency?
3. Make an analytic comparison of the
national security policy machinery used by Presidents
Roosevelt, Truman, Eisenhower, Kennedy and Johnson in
such a way that present options and choices for the
new President are clearly set forth.
4. Include in the above a critical review of
the current and future abilities and procedures in the
national security community to anticipate crises in
foreign affairs and to form contingency plans both
interdepartmental and intergovernmental.
15
IV. ISSUES IN THE PRESIDENT'S ROLE AS CHIEF RECOMMENDER
Article II, Section 3
"He shall from time to time give to the Congress
Information of the State of the Union, and recommend to
their Consideration such Measures as he shall judge
necessary and expedient;"
A. The Increasing Role
1. Graph (in terms of numbers of Messages,
or perhaps of words) the growth of formal
proposals Presidents have made to Congress
from Washington's term on.
2. Describe the changes in technique: from
the written note to the evening, televised
address to a Joint Session.
3. Compare comments on this practice by
Presidents, Senators and Congressmen
and others. The future: more of same
undiminished or even increasing?
B. Information for Policy Formulation
1. Make a thorough analysis of OEO's
Information Center function -- what it
has done already (County-by-County
Poverty Indicators, a catalogue of
assistance programs, County-by-County
Federal expenditure analysis), and what
it foresees being able to do in the future
16
(construction of models, testing of
alternative hypotheses).
2. Do the same for OEP's PARM system and
the facilities this represents.
3. Review the economic information function
of the Council of Economic Advisers--
what it can contribute.
4. Distill from these analyses and any
other systems being inaugurated in
progressive Departments, alternative
proposals for constructing a Presi-
dential information system for policy
formulation (fitting same hand-in-glove
with the information systems for pro-
gram coordination-- being discussed
under Section 1-B above).
C. Unresponsible Advice for Policy Formulation
1. Total (in numbers) the Citizens Commissions
and Councils (those made public and those
not made public) advisory to the Presi-
dent from Roosevelt's time on.
2. Describe and show the plusses and minuses
for the President of the various roles
Advisory Commissions play vis-a-vis the
Presidency (e.g. researchers, balloon-
floaters, crises-calmers, stallers,
wakers-up of somnolent Departments, policy
17
reviewers and innovative proposers,
lobbiers-in-Congress, talent pools,
keep-Congress-happy groups, patronage
outlets, even needlers of the Presi-
dent himself, etc) and name an example
or two of each of these types.
3. Name the whole total in being as of
January 1, 1968 which were advisory to
the President. Analyze the problems
of overlap, vague terms of reference,
poor attendance.
4. Analyze the rocky road every President must
in the end travel from unresponsible to
responsible advice -- from the blue-sky
proposals of Commissions to feasible
legislative recommendations.
5. From all the above, what guiddines can be
proposed for the President's use of public
advisory groups --- perhaps to make that
final stretch less rocky for him?
6. Explore the idea of a common secretariat
and common facilities for public advisory
groups to the President.
D. Responsible Advice for Policy Formulation
1. How open are the channels between the
President and the senior career
18
bureaucracy? How open should they be?
-- White House social receptions
from time to time?
-- Should the President visit more
Federal field installations?
-- Should the President oftener visit
the Departments for closed-door
Q and A sessions with assembled
career officers?
-- Should the President, should the
White House Staff, directly seek
the advice of career officers?
Analyze the benefits and risks
in view of the pressures on the
President from program-loyal
bureaucracies.
-- What other ways, if any, to bring
the President closer to his career
helpers?
19
2. The role of Cabinet Members and
the other political executives --
the razor-edges they walk:
a. Between the bureaucracies
and the President;
b. Between Congress and its
Committees and the President;
C. Between outside pressure
groups and the President.
d. What additional measures,
if any, are needed to ensure
that the President gets Cabinet
Members' unvarnished advice?
3. The Bureau of the Budget features
its Legislative and Budget Reviews
as machinery for policy formulation:
Any improvements possible?
20
4. The role of Committees:
a. Cabinet Committees: Make an analysis
of their strengths and weaknesses.
e.g. the Cabinet Committee on Balance
of Payments probably has been quite
effective; the Economic Opportunity
Council probably has not. What
makes for success-- in terms of
helping the President? How can the
sense of Presidential or inter-
departmental perspective come to flower
on the part of senior career and
Sub-Cabinet/Cabinet officers?
b. The Cabinet as a collective body.
How have different Presidents used
it? Accomplishments and limitations;
lessons earned from the Eisenhower
experience; role of a Cabinet Sec-
retariat; options for a new President.
C. Committee management: how can good
techniques help a President? What
about a common secretariat located in
or near the White House for the senior-
most Cabinet Committees? What could
its role be in policing the adequacy
of distribution of papers, flagging
21
the key decisions and knottiest
problems for the President, supplying
common facilities?
5. The role of the Executive Office:
It's in six pieces (BOB, CEA, OEP,
NSC, OST, OEO) with more continually
proposed. Does it make sense to have
such a subdivided staff, fractioned by
statute, in the Executive Office of the
President? Do the President's problems
fit into such packages? Is some con-
solidation in order in the President's
own environs?
E. Other Possible Issues Surrounding the President's
Policy-Formulating Relationship with Congress
1. Evaluate the consultative arrangements -
at White House and at Cabinet level.
2. Review the doctrine of Executive
Privilege.
22
V. ISSUES IN THE PRESIDENT'S ROLE AS CHIEF PARTISAN
The dilemma is between the President who
knows that both foreign and domestic issues are complicated,
full of gray areas, with key supporters for his positions
on both sides of the political aisles vs the same Presi-
dent who must rise before his partisans every 2 or 4
years and state the issues as being the "good guys against
the bad guys".
This dilemma is probably not ameliorable.
A. The Decline of Patronage
Analze the effect of the decreasing number of
non-merit positions (e.g. IRS, Customs, Post
Office) on the President's ability to use
patronage as a lever of persuasion and
influence.
B. The President's Relationships to the Party -
What are the Proprieties?
1. In Fund-raising?
2. For his personal role in campaigning?
3. In building the party for the future?
23
VI. ISSUES IN THE PRESIDENT'S ROLE AS CHIEF OF STATE
A. Answering his mail
1. Graph the numerical increase in mail to the
President since 1932.
2. Graph the numerical increase in gifts sent
in to the President since 1932.
3. Graph the increase in private requests for
Presidential statements and messages since
1932.
4. After considering both precedent and prognosis,
what would be some useful guidelines for the
future in what has been called the Pastoral
Role of the President?
B. Communicating with the American Public
The country looks to the President to provide
unifying leadership particularly amid the disorder and
dissension of these times. What new or refurbished modes
of communication should the President consider?
-- "walks in the ghetto" a la Lindsay
-- some kind of local Presidential presence,e.g.
at regional level
-- Fireside chats a la Roosevelt.
-- Giving the thousands of White House tourists
more information about the Presidency
What others?
24
VII. OTHER AREAS OF INQUIRY
A. Assistance from the Vice President
At least in the public mind, the question almost
always arises: "What can the Vice President do to help
with the burden on the President?" Being fully aware of
the extreme sensitivity of President-Vice President
relationships, a proper study could and should discuss the
possibilities and the limits of Vice Presidential assist-
ance in the form of:
1. Trips and Conferences abroad
2. The "Staff officer" function on specific
problems (e.g. as Vice President Johnson
did on the supersonic transport.)
3. Chairmanship of Cabinet committees
4. Liaison with special groups (e.g. Vice
President Humphrey with Mayors)
5. Political duties.
B. Structure of the White House Staff
Here particularly the caveat at the beginning of
this outline comes into play: there is no "right" structure.
Yet since the Brownlow-Merriam Report of 1937, there is
experience with various forms. What light does this experience
shed on the alternatives open to a new President?
1. A staff of specialists or generalists?
25
2. A structure of hierarchy or equality?
3. The need for internal communication
devices.
4. Cooperation with special staffs (e.g.
national security) and with coordinating
units in the Executive Office.
5. Idea of a Conference Secretary and what
he could do (e.g. decision records, rapid,
limited distribution systems),
6. Desirable and undesirable methods of
liaison and quick communication between
White House Staff and key parts of the
bureaucracy.
7. The extension of White House staff: secre-
tariats, duty centers in the Departments.
C. The Presidential Role with the Press
1. What are the proprieties if any? New
rules needed? The choices facing
each President.
D. Presidential Facilities
The White House Residence was rebuilt 18 years
ago. But the White House office facilities, and some of the
procedures in it are not far removed from horse-and-buggy
'days:
26
1. The Chief Physical Needs
a. Space for offices
b. Conference facilities; a Cabinet
Room with visual display capability
C. An auditorium
d. Reception facilities
e. Ceremonial facilities
f. Press facilities
2.
Communications Procedures
a.
Messengers getting in and out of
cars and driving them around town;
electronics surely have moved us
beyond this.
b.
Explore a tube delivery system;
secure multiple LDX; secure
conference television
E. Should there be more of a Role for Ex-Presidents?
1. In the Congress or in the Executive
Branch?
2. Constitutional or statutory? -- or
stick with informal arrangements?
Calendar No. 781
90TH CONGRESS
1sT SESSION
S. RES. 187
[Report No. 797]
IN THE SENATE OF THE UNITED STATES
NOVEMBER 20, 1967
Mr. FULBRIGHT, from the Committee on Foreign Relations, reported the fol-
lowing resolution; which was ordered to be placed on the calendar
RESOLUTION
Whereas the executive and legislative branches of the United
States Government have joint responsibility and authority
to formulate the foreign policy of the United States; and
Whereas the authority to initiate war is vested in Congress by
the Constitution: Now, therefore, be it
1
Resolved, That a commitment for purposes of this reso-
2 lution means the use of, or promise to a foreign state or
3 people to use, the Armed Forces of the United States
4 either immediately or upon the happening of certain events,
5 and
6
That it is the sense of the Senate that, under any cir-
7 cumstances which may arise in the future pertaining to
8 situations in which the United States is not already involved,
V
2
1 the commitment of the Armed Forces of the United States
2 to hostilities on foreign territory for any purpose other than
3 to repel an attack on the United States or to protect United
4 States citizens or property properly will result from a de-
5 cision made in accordance with constitutional processes,
6 which, in addition to appropriate executive action, require
7 affirmative action by Congress specifically intended to give
8 rise to such commitment.
The Secretariat Function in the White House
In Jackson's time it was like this:
"The gineral says he likes things simple as a mouse
trap .... There is enuff of us to do all that's wanted.
Every day, jest after breakfast, the (President) lights
his pipe, and begins to think pretty hard.
I
and
Major Donaldson begin to open letters for him; and there
is more than three bushels every day, and all the while
coming. We don't git through more than a bushel a day;
and never trouble long ones, unless they come from Mr.
Van Buren, or Mr. Kindle, [Amos Kendall] or some other
of our great folks. Then we sort 'em out jest like
Zekil Bigelow does the mackerel at his packin' yard
We only make three sorts and keep three big baskets,
one marked 'not red', another 'red, and worth nothin''
and another 'red, and to be answered'. And then all the
(President) has to do is to say, 'Major, I reckon we
best say so and so to that,' and I say 'Jest so', or not,
jest as the notion takes me -- and then we go at it.
"We keep all the Secretaries and the Vice President, and
some District Attorneys, and a good many of our folks,
and Amos Kindle moving about; and they tell us jest how
the cat jumps.
"As I said afore, if it warnt for Congress meetin' once
a year, we'd put the government in a onehorse wagon,
and go jest where we liked.
Today the problem is somewhat tougher. In particular, how
can the President be sure that each decision he makes is:
First of all: remembered -- written down and kept track of?
Second: communicated -- to the tiny or broad circle of men
who need to know about it to act?
Third: followed up in the future days or weeks?
Fourth: recalled -- when a new, related decision is pending?
*Extract from letter from Major Jack Downing, dated August 17, 1833
(Major Downing was an assistant to President Andrew Jackson)
2
here are three ways.
A. He can try to do these things himself: personally
write down, personally transmit, personally follow up,
personally remember.
This puts an entirely needless burden on the President.
B. He can ask each White House or Executive Office or
Cabinet Officer to whom he talks on a given matter to do these
four tasks on each resulting decision.
This might work, but then there would be perhaps fifty
separate and individual centers of record, transmittal, follow-
up and recall. A few might perform well, but most of them
would let their specialized action tasks take priority over the
more prosaic staff function. Moreover there would be no one
place where the whole is pulled together.
C. The President can designate a Secretariat Officer --
who is to be czar of nothing but a communicator to all. He
can mandate to this officer the primary task of being Recorder,
Transmitter, Reminder and Memory.
It is proposed that in the new White House, such an officer
be designated, perhaps be called the Conference Secretary, and have
the following functions, allowing for any exceptions or special
emphases the President would wish to invoke:
1.
Record each Presidential decision touching official business.
The modes of doing this would vary:
a) sitting in on Presidential conferences;
b) contacting key White House or Cabinet Officers immediate-
ly after a Presidential conference, to ascertain the
3
substance of decisions reached;
c) attending Cabinet and NSC meetings.
The records of decisions could be cross-filed by Depart-
ment, by subject, by White House Officer concerned. At the end
of each day or week or month, the President could be presented
with a capsule summary, if he wished, to review. As the weeks,
months, and years went by, this record collection would be an
absolutely invaluable asset to the President himself and his
senior staff.
Result: the President will never be plagued
with the question: "Did anybody remember what I
said on that subject?"
2. Transmit each decision or commitment to just those who
have to know of it in order to act on it. Recipients
of this service would typically be: the appropriate
Officers on the White House Staff, in the Executive
Office, in the Departments, often the Vice President.
Telegraphic or remote Xerox facilities could be used
for speed as needed; the oral mode would be eschewed.
Each recipient would know who the other recipients
were; doubtful or highly sensitive instances would be checked
with the President if necessary.
Result: The President and his Cabinet or
White House action officers could concentrate on
the substance of action, and not be plagued with
the question: "Did we inform the right people of
our decision?"
4
3. The Conference Secretary would ensure that each decision
or commitment was followed up at the appropriate time,
using a proper measure of judgment as to what that time
would be: within hours, days or weeks. He need not be
the personal "needler" -- the White House staff or the
Executive Office might be doing the actual "riding herd"
but he would make sure, for himself and the President,
that the reminding continued until the commitment was
fulfilled.
If the President wished, the Conference Secretary
would periodically prepare a status report of the outstanding
decisions which needed especially thorough follow-up - so the
President or senior White House Staff could glance down the
list
Result: The President need not fear that the
decisions he makes will evaporate in execution.
4. Since the Conference Secretary could be expected to know
when related decisions are pending, he would automatically
supply to the President and White House Staff the records
of earlier decisions, as points of reference.
5. The Conference Secretary, with the President's permission,
could and ought to serve the senior White House Staff
Officers in the same four-fold staff capacity in which
he would help the President. Their decisions are White
House decisions, and thereby would have some of the force
of the Presidency; they deserve the same `services.
The Conference Secretary would. be particularly
5
valuable to his White House staff colleagues in that he would
guarantee to them that however staccato they are working, they
would be automatically keyed into any Presidential decisions
which affect them.
6. The Conference Secretary can and should be expected to
ensure that preparations for any Presidential or senior
White House conference are taken care of: that the list
of attendees is known (and OK'd) by the Convenor of the
meeting, that papers (if any) are in the hands of the
attendees in advance; that conference facilities have
been arranged for.
In addition to these central staff functions, the Conference
Secretary is the most logical officer to ask to perform three
other basic secretariat tasks:
7. Preparing for Cabinet meetings. This would bring the
advantage of not having a separate Cabinet Secretariat
sitting by itself as in the White House of 1953-61, but
tying this service directly into all the other staff
functions to which it is closely related. This relation-
ship would strengthen the President's assurance that
the right matters were being brought into Cabinet at the
right time, and not extraneous issues dredged up for
the occasion.
Naturally the Conference Secretary's office would render
its services to Cabinet Committees, if any were established
to make special reports. (President Eisenhower set up five
6
in 1954.) If the President wished, it could extend these
conference services also to Presidential Task Forces of
private citizens. (President Johnson was using perhaps
two dozen of these at once.) The advantage here is not
only one of economy in staff (one secretariat instead of
dozens of outlying ones) but in the intelligence system
which is thereby created for the President and his senior
White House officers: they will know what is going on in
many policy forums
8. Riding herd on an Advance Information System for the
President. The scarcest commodity around the White House
is information from the Executive Branch about problems
which are "around the corner". On accomplishments there
is a glut; on the crises which finally confront the
President there is preoccupation. But the President
needs a warning system: to shake out from the reluctant
Departments the first indications of crises before they
occur, to be told of smoke before it becomes fire.
President Eisenhower initiated such a system which, in
varying forms, has continued. From 1956-61 it was daily,
was called "Staff Notes" and the Departmental raw material
was edited by an officer in the White House. Vice President
Nixon received a daily copy. In 1961 President Kennedy
changed it to a weekly (Tuesdays) collection of two-page
memoranda, unedited. President Johnson has similar systems,
including one wholly for legislative developments.
7
The new President needs an Advance Information System
(which is for information only, never for action items) but
it will require energetic White House reminding to traditionally
uncooperative Departments.
9.
Reviewing memoranda and correspondence submitted for
Presidential (and possibly senior White House Staff)
action.
It is of course a matter of Presidential style whether
he would wish a central point of secretariat review of action
proposals, in addition to the substantive review naturally
given to them by White House staff officers. General Goodpaster
performed this function for President Eisenhower, asking of
each action paper:
Is it necessary?
Is it responsive?
Is it ready for the President's action?
Is it timely?
Is it coordinated?
How will it be followed up?
If this review function is desired, the Conference Secre-
tary's office could provide it.
The Conference Secretary would be a facilitative, not a
substantive staff officer. He would have to personify those
original White House virtues so well described in 1936:
8
"
would have no power to make decisions or
issue instructions in [his] own right
would
not be interposed between the President and
the heads of his Departments
would not be
assistant President in any sense
would remain
in the background, issue no orders, make no
decisions, emit no public statements
should
be possessed of a high competence, great physical
vigor and a passion for anonymity. "
The Conference Secretary would have no "empire". With a
senior assistant or two (e.g. for Cabinet) his office could be
staffed by young men whom the President wanted to bring into
government, by White House Fellows, by outstanding young Civil
Service interns.
This office could be expected to investigate the use of
automatic equipment to store, send and retrieve information; in
this area the White House has been a laggard among agencies.
The Conference Secretariat would be only as modest or as
elaborate as the President wished; it would build on the many
administrative achievements made on the White House staff since
1953 and it could help the President make his own unique con-
tribution to the art of public administration at the apex of
government.
Bradley H. Patterson, Jr.
9
M - x
Transition
bcc: Bob Haldeman
ma John Ehrlichnen John
November 18, 1968
Dear Congressman Meader:
Thank you so much for your gracious
letter of good wishes.
I am sure the material you enclosed
will be most helpful to those who are working
with Mr. Nixon on the transition, and I am
forwarding it to them for their use.
With kindest regards,
Sincerely,
Rose Mary Woods
Personal Secretary to
the President-Elect
The Honorable George Meader
3360 Tennyson Street, N. W.
Washington, D. C. 20015
A. S. MIKE MONRONEY, OKLA.
RAY J. MADDEN, IND.
CO-CHAIRMAN
CO-CHAIRMAN
JOHN SPARKMAN, ALA.
JACK BROOKS, TEX.
LEE METCALF, MONT.
KEN HECHLER, W. VA.
KARL E. MUNDT, S. DAK.
THOMAS B. CURTIS, MO.
CLIFFORD P. CASE, N.J.
J. CALEB BOGGS, DEL.
Congress of the United States
DURWARD G. HALL, MO.
JAMES C. CLEVELAND, N.H.
¡EORGE MEADER
NICHOLAS A. MASTERS
CHIEF COUNSEL
JOINT COMMITTEE ON
RESEARCH CONSULTANT
MELVIN W. SNEED
THE ORGANIZATION OF THE CONGRESS
STAFF ASSISTANT
(PURSUANT TO S. CON. RES. 32, 90TH CONGRESS)
WASHINGTON, D.C. 20510
3360 Tennyson St. N.W.
Washington DC. 20015
EM2-6915 EMI 6915
Dear Pose many,
nov,13,1968 you
Congratulations!
I would appreciate your giving
the enclosed sufficient study to sex
that it is either brought to the
attention of Mr. Dixon or referred
to some one in his organization who
can make we of it
Best Wishes!
Sincerely, George Meader
A. S. MIKE MONRONEY, OKLA.
RAY J. MADDEN, IND.
CO-CHAIRMAN
CO-CHAIRMAN
JOHN SPARKMAN, ALA.
JACK BROOKS, TEX.
LEE METCALF, MONT.
KEN HECHLER, W. VA.
KARL E. MUNDT, S. DAK.
THOMAS B. CURTIS, MO.
CLIFFORD P. CASE, N.J.
Congress of the United States
DURWARD G. HALL, MO.
J. CALEB BOGGS, DEL.
JAMES C. CLEVELAND, N.H.
GEORGE MEADER
NICHOLAS A. MASTERS
CHIEF COUNSEL
JOINT COMMITTEE ON
RESEARCH CONSULTANT
MELVIN W. SNEED
THE ORGANIZATION OF THE CONGRESS
STAFF ASSISTANT
(PURSUANT TO S. CON. RES. 32, 90TH CONGRESS)
WASHINGTON, D.C. 20510
November 13, 1968
Hon. Richard M. Nixon, President-Elect,
United States of America
New York, New York
Dear Dick,
Like Abraham Lincoln (and George Meader) you lost a few. But
you won the big one. Congratulations!
Your telegram of November 2, 1968, thanking me for my partici-
pation as panelist on "Speak to Nixon-Agnew Programs" was apprecia-
ted.
In 1952, after Ike won, in my first term, two gentlemen came
to see me in my Congressional office. One was Fred Telford, an
old civil service buff. The other was Bill Brownrigg, first Civil
Service Director of the State of Michigan (formerly Civil Service
Director of California). I met Bill when I was Counsel for the
Michigan Merit System Association in the late 1930's.
They left a document with me which they had prepared-blue-
printing the take-over of the executive branch after 20 years of
the New Deal and Fair Deal--without violating civil service laws
or merit principles.
This document and their discussion sufficiently impressed me
that I brought it to the attention of Al Cole of Kansas who had
been defeated for Congress while he was helping others get elected,
and was, at the time, deputy to Mr. Roberts of Kansas, National
Committee Chairman.
Al told me that he thought the document excellent and that he
had given it to Roberts and had urged him to study it. Unfortune
ately, some scandal about Roberts' lobbying the Kansas legislature
brought a sudden end to his service as National Committee Chairman--
and that was that!
Meanwhile, immediately after Ike's election, Art Fleming, Nel-
son Rockefeller, and Milton Eisenhower were somehow constituted
the President's Reorganization Committee. Each of them had held
important posts in the Roosevelt and Truman administrations.
Apparently, they were in charge of the take-over.
2
When your election appeared imminent, I tried to resurrect the
1952 civil service document. I contacted both Brownrigg and Tel-
ford and also Ab Hermann at the National Committee. Finally I
obtained a copy of a subsequent version of this document from Bill
Reed who had received it from Bill Brownrigg, III, in 1953.
The Telford document is entitled "A Suggested Patronage Pro-
gram for the Incoming Republican Administration." It is dated
January 12, 1953. A copy is enclosed.
Bill Reed, who was Deputy Sergeant-at-arms of the Senate in
the 83rd Congress, also gave me a document dated November 24, 1953,
entitled "Federal Personnel Problem,' a copy of which is enclosed.
This document is sketchy but confirms many of the criticisms of
the Telford document and recounts techniques employed--and some
specific examples--to obstruct effective take-over of the bureau-
cracy by the Eisenhower Administration.
I have re-read the Telford document and it seems sound and
as applicable today as it was in 1952.
Last week I obtained a copy of "Policy and Supporting Positions"
from the House Post Office and Civil Service Committee, compiled
by the Civil Service Commission pursuant to a request for a list of
"excepted positions" by the chairman and ranking minority member
of the committee. A cursory examination of this document (a re-run
of the 1964 Blue Book) satisfies me that if you replaced all of the
incumbents in these positions, which are presently replaceable,
your administration would be no different in any substantial way
from the Johnson and prior administrations, to the extent that the
entrenched bureaucracy could influence it.
Your first and most crucial job is to achieve control of the
bureaucracy--without being successfully attacked for reverting to
the "spoils system."
You can be sure that the bureaucracy has missed few bets on
locking itself in. The task of a meaningful take-over will not
be easy. Legislation may be needed. A new "Hoover" Reorganiza-
tion Commission may be necessary or extensive use of the reorgani-
zation power of the President. All will, of course, be difficult
to achieve in view of Democratic control of both Houses of Congress
and obviously would require time.
More urgent is the requirement to assemble quickly high-powered
and reliable skills in the field of civil service, with the capa-
city to effectuate change under existing laws and regulations.
3
One good source would be the civil service systems of state and
local governments or the personnel departments of private busi-
ness.
You may be sure you have my best wishes for success in the
formidable task you have undertaken.
Sincerely,
George George Meader
3360 Tennyson St., N. W.
Washington, D. C. 20015
Tel. EM 2-6915
Enclosures
A SUGGESTED PATRONAGE PROGRAM FOR THE INCOMING
REPUBLICAN ADMINISTRATION
Prepared by Fred Telford
January 12, 1953
A SUGGESTED PATRONAGE PROGRAM FOR THE INCOMING
REPUBLICAN ADMINISTRATION
Prepared by Fred Telford
Director of the Bureau of Public Personnel Administration
Ednor, Maryland (telephone Fulton 8 - 5707)
Explanatory Statement
Page 2
A - Patronage Possibilities
Page 3
B - The Civil Service Myth.
Page 6
C - Patronage Pitfalls
Page 9
D - The Suggested Method of Handling Patronage
Page 16
E - Listing and Classifying the Job Seekers
Page 20
F - Obtaining Needed Information About Positions
Page 23
G - Matching Men and Jobs
Page 25
H - Making Indefinite, Temporary, and Other Types of Appointments
not Giving Permanent Status
Page 28
I - Making Permanent Appointments
Page 29
J - Revamping the Personnel Machinery of the National Government
Page 32
K - Supplemental Observations
Page 42
January 12, 1953
2 - Suggested Patronage Program - FT
EXPLANATORY STATEMENT
The following statement, entitled "A Suggested Patronage Program for
the Incoming Republican Administration, " has been prepared by Fred Telford
after consultations with a number of persons active in political matters and in
technical personnel operations. All of those consulted are in agreement as to
the procedures suggested but the manner of presentation is Mr. Telford's only.
For thirty years Mr. Telford has been engaged principally in various
types of personnel work and in doing related budget, taxation, and organization
work for large and small business and government organizations. He has
done administrative, consulting, and technical work for the national govern-
ments of the United States and Canada, for a dozen state governments, and
for nearly a hundred local governments. He has also aided a number of po-
litical organizations; in particular he has aided them in developing and exe-
cuting programs designed to make it possible for them to appoint the largest
possible number of party adherents to suitable positions without violating
the personnel laws and without incurring avoidable public and voter opposi-
tion and resentment.
3 - Suggested Patronage Program - FT
A - PATRONAGE POSSIBILITIES
All told there are now somewhat more than two and a half million
civilian positions in the executive branch of the national government. In
addition, about half a million positions now labeled and treated as military
are really civilian in nature; these should be moved to the civilian category
and treated in the same manner as other civilian positions.
Something more than two hundred thousand of these positions are not
subject to the civil service laws and are usually regarded as in the "patron-
age" category. About 170, 000 of these are located in what is called the
continental United States. The remainder are located in foreign countries,
in Alaska, in Puerto Rico, and in some other "possessions" of the United
States. Actually, however, it would be difficult to use approximately half
of these positions for patronage purposes; examples are those in the Federal
Bureau of Investigation; the Tennessee Valley Authority, and several other
agencies. For still other positions there are legal prescriptions as to
qualifications and firmly established methods of recruiting. Nevertheless
at least a hundred thousand of these positions are available for patronage
purposes.
Somewhat more than half of the two and a half million positions now
labeled as civilian are filled by officers and employees having what is called
permanent status. These are popularly supposed to be sacrosanct as far
4 - Suggested Patronage Program - FT
as patronage is concerned. Such, however, is far from the case. In any
given year approximately a quarter of a million officers and employees
having permanent status leave their positions, which then have to be filled.
In addition, both the classification of these positions and the recruiting for
them have been so carelessly done that, if the positions were reclassified
in the manner prescribed by law, a large fraction of the present incum-
bents would have no legal or moral right to their positions as reclassified.
About a million of the two and a half million positions now labeled as
civilian are filled by officers and employees who have what is called in-
definite status or temporary status. They have been recruited in various
ways; a goodly proportion of them are protegees of bureaucrats who, in
recent years, have been building up their own personal machines. In any
case they are serving at the pleasure of their respective appointing au-
thorities, though the Civil Service Commission is trying to get for them
what it proposes to call "reserve" status. A large number of these in-
definite and temporary employees are very well qualified for the posts
they hold but about as many, because of careless and inadequate recruit-
ing methods, are not. It would be a technical personnel crime of the
first order to give them permanent status. Probably half of them, on
the basis of their qualifications - or lack of qualifications - should be
displaced. A good many of these, however, are veterans whom it might
not be expedient politically to separate from their present positions. It
5 - Suggested Patronage Program - FT
seems safe to state, however, that the more quickly three or four hundred
thousand, and possibly half a million, of these indefinite and temporary em-
ployees are gotten out of the service, the better it will be for the country
and the Republican party.
If the half million or so positions now labeled as military but which are
civilian in nature were moved to the civilian category and treated accord-
ingly, just that many positions would become available for the appointment
of civilians. The present incumbents, being in the main trained in military
science, would be assigned to military duties. Of necessity most of the
new incumbents would at the outset have to be given indefinite or temporary
appointments; this means that the appointing authorities, while observing
meticulously every legal and other restriction, would have a relatively
free hand in selecting their appointees.
In a word, the incoming Republican administration has at its disposal
well over a million appointments and, if it wishes to make effective use of
all the legitimate legal devices, well toward two millions. In addition, the
labor turnover is so large as to make available additionally at least half
a million more appointments each year.
6 - Suggested Patronage Program - FT
B - THE CIVIL SERVICE MYTH
Civil service systems are a perennial mystery to those who organize
and operate political organizations - and particularly to those who under-
take to dispense patronage. This applies in state and local governments
and reaches its peak in the case of the national government. Almost
without exception, as to the national government, the party leaders make
one of two major patronage errors. The first is to accept the myth that,
as far as the positions included in the civil service system are concerned,
they are sacrosanct and therefore cannot be used for patronage purposes.
The second is to disregard inconvenient provisions of the civil service
laws and to make appointments by the use of methods which are illegal,
which outrage public sentiment, which bring the party into disrepute, and
which drive sizable segments of the voters into the opposition party. Never
in this century have the party organizations used the civil service machin-
ery on a large scale to achieve their party ends in a legal and ethical
manner through the appointment of large numbers of party followers.
The civil service myth is particularly strong and wide spread in the
case of the national government where the basis for the commonly held
civil service beliefs is weak and sketchy. As a matter of fact, those re-
sponsible for the administration of the civil service laws - that is, the
Givil Service Commission, the agency personnel units, and the several
7 - Suggested Patronage Program - FT
appointing authorities - honor them much more frequently in the breach
than in the observance. A few examples show this flagrant disregard of
legal requirements and of sound personnel principles. The law properly
requires that positions, on the basis of their duties and responsibilities,
are to be grouped into homogeneous classes for use in carrying on pay,
recruiting, and other personnel operations; the grouping is incomplete and
poorly done and the classes as such are seldom used for either pay, re-
cruiting, or other purposes. Instead the vain attempt is made to treat
each position as an entity and to disregard the class. In some cases, to
be sure, the recruiting is for a true class; examples are Railway Mail
Clerk and Messenger. Much more frequently, however, such examina-
tions as are given (the number is only a fraction of those needed) are in-
tended for broad groups of positions only loosely related and the result-
ing "registers" are used in hit and miss fashion. In one case, for example,
when the operating officers asked that qualified persons be certified for
appointment as Naturalization Examiner, they were practically forced to
use a "register" resulting from an examination dealing in the main with
broad legal problems and containing the names of those who, almost en-
tirely, had tried practicing law and who had failed therein. The law re-
quires that, with some exceptions, promotions be made only as the result
of examinations; yet, since 1883, when the law was enacted, not a score
of promotion examinations have ever been held. The law also requires
8 - Suggested Patronage Program - FT
that appointments to positions in the departmental service - roughly, though
not accurately, those in Washington - be apportioned among the several
states according to their population; regularly the Civil Service Commission
publishes lists showing this is not being done. Example after example of
this kind could be given. In the main those who have to make personnel
decisions do much as they please with scant regard for civil service laws
and rules; in their own words, they decide each case "on its merits. "
Bureaucrats by the dozen use the appointing power to put into office their
favorites and protegees and to build up powerful personal machines to be
used for their own advantage with slight regard for the administration in
office or for the political party in nominal control at the moment. Some
have become so strong in their own right that they have defied Presidents,
Congressional committees, and party organizations.
Though this system has produced, in the main, a distinctly high grade
personnel, there have been many large scale failures, particularly in re-
cent years and in the newer agencies. But the long established units have
not been free from embarrassing personnel happenings; well known examples
are the infiltration of subversives into the State Department and other units
and the corruption among the Collectors of Internal Revenue. It is clear
that the orderly personnel procedures prescribed by law should be sub-
stituted for the methods now in use. This would mean not only public
9 - Suggested Patronage Program - FT
acclaim but also, if proper methods are used, the substitution, while the
change is being made, of party patronage for personal patronage. The
existing personnel machinery and staffs would have to be revamped; some
of the actions needed are outlined in section J following.
10 - Suggested Patronage Program - FT
C - PATRONAGE PITFALLS
So nearly universal is the failure to realize the patronage possibilities,
particularly in large services, that it seems worth while to list and explain
some of the commoner and more significant patronage pitfalls.
First in order is the failure of the party leaders and also of organiza-
tion members on the lower levels to realize the magnitude of the patronage
problems. Where two and a half or three million positions are involved,
and probably two or three times that number of job seekers, the political,
technical, and clerical requirements are tremendous. In the case of the
national government the difficulties are increased by the diversified nature
and geographical scattering of the positions and by the varying needs, de-
sires, and qualifications of the job seekers. No political organization has
ever built up the technical and clerical staffs needed to cope with patron-
age problems of this scope and none has ever availed itself, except to a
very limited extent, of the legal and ethical use of the existing personnel
machinery of the national government.
When the party leaders fail to realize the magnitude of the patronage
problem, it follows as the day follows the night that they have no care-
fully thought out patronage program. More often than not they fondly con-
clude that, in some mysterious and unspecified fashion, the thing will
work itself out satisfactorily. But in large services it never does. The
11 - Suggested Patronage Program - FT
higher ups, at best, can give personal attention to only a few thousand po-
sitions - and in so doing they run the risk of neglecting other matters of
vital importance. The national party organization, with its limited staff,
can attend to some additional thousands. The state and local organizations
can assist materially, though the problems of coordination become difficult
at these levels. Few of the job seekers have any except vague information
as to the positions available; they typically ask for something "big, " make
much noise, exert pressure, and demand quick action. In the end large
numbers of party followers are appointed to positions which may or may
not be suitable in view of their qualifications. But double, triple, or quad-
ruple the number of actual appointments which are made might be made if
the needed party and other machinery were available.
The third pitfall is the delay in handling patronage matters. Time
after time those seeking appointments which would be to the party advan-
tage are told they must wait a little longer. At best, when a new admini-
stration takes 'over the national government, some months must elapse be-
fore a million appointments of party followers can be made in such a manner
as to serve the needs of the country and the party and to meet the require-
ments of the job seekers. When the days, weeks, and months go by with
only limited patronage action, two things occur. The first is that indi-
viduals within the party and bureaucrats within the service increasingly
12 - Suggested Patronage Program - FT
take or force action which in many cases has unfortunate repercussions. The
second is that many of those who think they are entitled to appointments but
who fail to get them become vociferous and belligerent. In the end there are
a good many appointments which, if they had been made promptly, would have
been a distinct party asset but which, when made after annoying delays, are
regarded as grudging and belated recognition calling for doubt and hostility
rather than gratitude.
The fourth major patronage pitfall also comes about, in considerable
part, from the failure to recognize the magnitude of the patronage problems
and to set up the organization needed to handle patronage matters. With two
and a half million positions in the service, half of which or more are avail-
able for patronage purposes, and with three, four, or five million party
followers actively seeking appointments to which they think they are entitled,
the task of matching men and jobs takes on large proportions. Sometimes
the failure to do the matching well means nothing more than a poorly
manned service about which the voters are only dimly aware. Typically,
however, when the matching is poorly done, there is a stench which the
voters cannot miss, which they resent, and which they punish at the next
election. This happen's particularly when the misfits are given positions
where they are in the public eye, or when they have corrupt or subversive
tendencies, or when those lacking basic qualifications are given positions
in which they have to make administrative or technical decisions that are
far reaching.
13 - Suggested Patronage Program - FT
There are other patronage pitfalls which might be discussed. It seems
more to the point, however, to point out how, from 1933 to 1952, the Demo-
crats came to grief because of their failure to envision and guard against
avoidable patronage mistakes of the king that the Republicans can, if they
will, avoid:
1. When a comprehensive plan of dispensing patronage was presented
to him early in 1933, Mr. Farley decisively refused to face large scale
patronage realities. He insisted that it would be readily possible, with the
existing party machinery, to discover the deserving Democrats who should
be appointed to federal positions, to locate the available positions, and to
match men and jobs. The tasks, in reality, were not so formidable as they
now are because then the federal service was only a fifth as large as it is at
present and the positions were much less diversified. Yet, after about three
months, Mr. Farley found it expedient to make a nation-wide radio address
in which he tried, not very successfully, to explain why relatively few ap-
pointments had been made and in which he pleaded with the faithful party
followers to be patient for a few more months while the necessary arrange-
ments were being made.
2. For years and years during the Roosevelt and Truman administra-
tions the only active member of the Civil Service Commission was the
minority Republican member. First Leonard D. White, then Samuel
Ordway, and after him Arthur S. Flemming interested himself in the
14 - Suggested Patronage Program - FT
policies, programs, procedures, and activities of the Commi ssion while
their Democratic colleagues remained largely inactive. This anomaly was
discussed in more than one cabinet meeting; Secretary Ickes in particular
asked that something be done. But no remedial action was taken.
3. In the absence of any expressed and consistent party interest or
action, one bureaucrat after another took advantage of the situation to build
up his own personal machine. To give a single example, Ismar Baruch, head
of the classification unit of the Civil Service Commission, took pains from
1933 on to become so powerful that he was able successfully to disregard
the express instructions of his superiors in the Commission, President
Roosevelt, and powerful Congressional leaders.
4. Insufficient attention was frequently paid to certain basic qualifica-
tions, such as integrity and loyalty to the United States and its institutions,
in making appointments to many key posts. As a result, the Republicans
were able, in the 1952 campaign, to make effective issues of the corruption
and subversion situations; inept handling of patronage, in fact, led to no in-
considerable part of the "Washington mess. "
5. Most striking of all, perhaps, large scale patronage matters were
handled so ineptly that large numbers of those given appointments - possibly
a majority - were not even Democrats. This is indicated rather conclus-
ively by certain results in the 1952 election. Arlington, Fairfax County,
Alexandria, Montgomery County, and Prince Georges County, suburban
15 - Suggested Patronage Program - FT
areas near Washington in which the federal employees are so numerous as
almost to dominate the voting, all turned in sizable Republican majorities.
These and other things which might be cited did not just happen. They
came about because sufficient attention was not given to patronage problems.
They may be expected to recur under a Republican administration, in the
main, unless active steps are taken to produce a different kind of result.
16 - Suggested Patronage Program - FT
D - THE SUGGESTED METHOD OF HANDLING PATRONAGE
There are two compelling reasons why the orderly handling of patron-
age cannot be accomplished by means of the party machinery only. The first
is the prohibitive money costs which would be entailed in building up and
maintaining the large technical and clerical staffs necessary. The second,
which would be governing even if the first did not operate, is that the proper
matching of men and jobs cannot be done without detailed information as to
positions which the party does not now possess and which it cannot obtain
without delays running into the years.
These very stubborn facts show clearly that there are only two possible
courses of action. The first is to proceed much as the Democrats did, rely-
ing ppon methods improvised from time to time and then making a limited
number of appointments without having at hand much of the needed informa-
tion as to men and positions. This course is, or should be, unthinkable.
The second possible course is to use both the party machinery and the exist-
ing personnel machinery of the national government, making such changes
and improvements in both as are necessary. The following paragraphs
indicate, in barest outline, how this second course can be followed, legally
and ethically and practically, to achieve the desired patronage goals. The
later sections give some of the details.
The first step is to obtain the needed information about themselves
from party adherents seeking appointments. The party machinery should
17 - Suggested Patronage Program - FT
be used for this purpose. The national, state, and party organizations
should also supply information as to the propriety of the requests of the
job seekers and decide upon the priorities to be observed in making ap-
pointments. The specific procedures are outlined in greater detail in sec-
tion E following.
The needed information as to positions should be supplied by the Civil
Service Commission. This includes not only a listing of the positions to
which new appointments may be made but also rather detailed information
as to their geographical location, their duties and responsibilities, the
status of the present incumbents, and, as a matter of course, the rate of
pay. The Commission should have on hand in usable form all needed informa-
tion as to positions subject to the civil service laws. Unfortunately, however,
there are now many gaps and much of the alleged information has little re-
lation to realities. The suggested procedures are given in some detail in
section F following.
As a third step, the top level Republicans should determine with some
definiteness those positions in both the unclassified service and the classi-
fied service for which they will personally handle appointment matters.
Both the party organizations and the Civil Service Commission should supply
them with any information they need and desire in making their decisions
but need not concern themselves further with the designated positions.
18 - Suggested Patronage Program - FT
With adequate information as to job seekers and positions available,
the fourth step is in order. This is the matching of men and jobs. The
technical staff of the Civil Service Commission should do the original work,
which is highly technical in nature. Normally as many as a dozen or even a
score of suitable job openings should be listed, though in a relatively few
cases not even one will be found. Then the listings should be submitted to
the appropriate party organization, national, state, or local (normally for
the state and local organizations through the national organization), for defi-
nite decisions as to appointments. The procedures are outlined more fully
in section G following.
The fifth step is to make the appointment of the selected party follower
to the selected position, giving him, with a few exceptions, indefinite or
temporary status in positions in the classified service. The appropriate
party organization should inform the appointing officer of the proposal (nor-
mally he should collaborate in working it out), who should then make the
appointment (in some cases pressure has to be exerted from above to get
the appointing officer to act). The procedures are described more fully in
section H following.
In the course of two or three years - earlier if the pressure of the work
load permits - the sixth step is in order. That is, for most of the indefi-
nite and temporary appointees, to do the things necessary to give them
permanent status. The necessary procedures are outlined in section I
following.
19 - Suggested Patronage Program - FT
The normal labor turnover will inevitably make necessary the repetition
of the selection and appointment procedures for hundreds of thousands of po-
sitions each year. After the initial work, it will almost surely be found to
be desirable to establish in advance lists of qualified persons who take exami-
nations and can be given first probationary and then permanent status without
the intervening steps. If the examining work is handled competently, with the
party organizations using proper efforts to get qualified party adherents to
take the examinations, and if the appointing officers whenever possible select
a party follower from the three from whom a choice may be made, a very
large proportion of the probationary and permanent appointments will be of
party adherents approved by the party organizations.
It is apparent that, to handle large scale patronage matters effectively,
there must be some expansion of the staff of the national party organization
and some changes in existing procedures. And, at the outset, the whole
personnel set up of the national government must be overhauled. The nec-
essary changes include three carefully selected new members of the Civil
Service Commission; the writing and adoption of new and realistic civil
service rules prescribing workable procedures; the overhauling and re-
organization of the Commission's technical and clerical staffs, both at
Washington and in the field; and getting out of the personnel picture the
expensive, time consuming, and useless agency personnel units. The
suggested steps are outlined in section J following.
20 - Suggested Patronage Program - FT
E - LISTING AND CLASSIFYING THE JOB SEEKERS
It may be expected that the number of party adherents desiring appoint-
ment to civilian positions will run into the millions. Few will know a great
deal about the types of positions to which appointments may be made or the
requirements therefor. Most will prefer to remain at or near their present
places of abode but some will wish to go to Washington, New York, Chicago,
Los Angeles, or even abroad, or to places where they have relatives or
friends. Most are likely to have somewhat exalted ideas as to their own
capabilities, versatility, and worth. And, all experience shows, a sizable
fraction are averse to doing much work, to keeping regular hours, or to
meeting other obligations involved in performing assigned tasks in such a
manner as to reflect credit on themselves and their party.
Obviously it is necessary to obtain from each job seeker, with a rela-
tively few exceptions, the salient information in written form. This infor-
mation includes the name, age, sex, address, and telephone number of
the job seeker; brief statements of his formal education and occupational
experience; information as to the type or types of work for which he con-
siders himself fitted and which he would like to do; the place or places he
desires or is willing to work; the lowest rate of pay he is willing to accept
and the amount he would like to be paid; the approximate date he will be
available for federal appointment; and a succinct statement of the party
21 - Suggested Patronage Program - FT
services which he considers should be taken into account in deciding upon
appointments.
Clearly this information can be obtained most certainly by the use of a
carefully designed form. If any party follower regards the filling out of such
a form as beneath his dignity, or if he is illiterate, then it can be filled out
for him by the appropriate party organization. Obviously the form should
be supplied by and addressed to the party organization, national, state, or
local.
The form should contain a space for the appropriate party leaders to re-
cord their desires as to the appointment of the person who fills it out and sub-
mits it. Probably some such classification as this is most useful:
A - Early appointment urgently desired.
B - Appointment urgently desired but time not of the essence.
C - Appointment highly desirable.
D - Appointment approved if a suitable opening becomes available.
E - Appointment of little party significance but going through the
motions seems expedient.
In a separate space on the form the appropriate party leaders should
also record their own conclusions as to the type or types of federal work for
which the person filling out the form is qualified, the place or places he might
work, and the pay he should receive. It is not to be expected that in routine
cases they will have all the information needed to make a final decision on
22 - Suggested Patronage Program - FT
these points but they are likely to be better informed and more realistice than
the job seeker.
It need hardly be added that the forms should be made available for the
use of those who have the task of matching men and jobs.
23 - Suggested Patronage Program - FT
F - OBTAINING NEEDED INFORMATION ABOUT POSITIONS
As to most positions subject to the civil service laws, the Civil Service
Commission has a good deal of information. This includes the position title,
more or less information as to the duties, responsibilities, and organization
relationships of significance, geographical and department location, the name
and status of the incumbent, and the established rate of pay. Much of the in-
formation, however, and particularly that as to duties, responsibilities, and
organization relationships, is neither reliable, complete, nor current. The
positions, moreover, are not uniformly grouped into classes having titles
supposed to be descriptive; the classification work has been carelessly done.
Three significant conclusions may safely be drawn:
1. Enough position information of a usable type is currently available
to make possible a quick start on the large scale matching of men and jobs.
2. It will be necessary to collect and record current, reliable, and
complete information as to individual positions and, on the basis of this in-
formation, to group the positions into true classes before the initial patron-
age work is rounded out and before much of the later work involved in giving
permanent status to the initial appointees can be competently and legally
done. This is a task which will take the major fraction of a year after the
staff of the Civil Service Commission is reorganized and revamped but the
work can be so done as to speed rather than delay the early appointment of
indefinite and temporary employees.
24 - Suggested Patronage Program - FT
3. The position classification work is highly technical and need not be
described here. The techniques are well known and of proved worth. The
fact that the classification work has been toyed with rather than attacked vigor-
ously since it was first authorized and directed in 1923 should not be inter-
preted to mean that it cannot be quickly and well done when and if it is attacked
in earnest. It should be emphasized, moreover, that ascertaining and record-
ing the significant position information and grouping the positions into true
classes which may be used for pay and recruiting purposes is a basic require-
ment in handling large scale patronage operations.
25 - Suggested Patronage Program - FT
G - MATCHING MEN AND JOBS
With the significant information as to job seekers and as to positions at
hand, the personnel technicians on the staff of the Civil Service Commission
and the party leaders concerned can proceed apace with the task of matching
men and jobs. The work naturally divides itself into two parts:
1. The tentative matching, a technical operation to be handled in the
main by the personnel technicians.
2. The review by the appropriate party leaders of the proposals worked
out by the personnel technicians to make sure that the political as well as the
technical requirements are met as fully as possible.
While it seems unnecessary to explain the matching procedures in detail,
some examples make clear the nature and the magnitude of the tasks to be
done. If, for instance, a party adherent given high political priority lives in
Cedar Rapids, Iowa, is fifty years of age, wants to work only in his home
city, expects pay of $3500 a year, and has a varied semi-skilled mechanical
background, the choice of positions to which he may be appointed is very
limited indeed. But when the wider possibilities at another place a hundred
miles away are pointed out to him by the appropriate party leaders (such
information would normally be supplied them by the personnel technicians),
he may change his mind about the place of work. Or if an available position
in Cedar Rapids for which the pay is $3200 a year is called to his attention,
he may lower his pay sights. Matters of this type come up by the thousand
26 - Suggested Patronage Program - FT
in carrying on large scale matching operations; there is no escaping the "cut
and try" procedures which involve the understanding collaboration of the
personnel technicians and the party leaders.
Exactly the same type of thing occurs when the problem is approached
from the other angle - that is, finding the qualified party follower to be offered
appointment to an available position. If, for example, there is to be organized
a survey party to operate in the mountains near Chambersburg, Pennsylvania,
from June 1 to September 30, 1953, and there are needed three additional
chainmen and an instrument man, then a search may be made among the job
seekers for those able and willing to do the necessary tasks under the conditions
entailed. Here the difficulty is likely to be the temporary nature of the work -
for four summer months only. Yet this is just the type of employment many
who are attending engineering schools desire. It may well turn out, however,
that as to the three chainman positions party adherents who would like all the
year work will be willing to accept the summer jobs. Again the personnel
technicians and the party leaders concerned must collaborate to assure the
attainment of both technical and party ends.
In case the personnel technicians and the party leaders are not in accord
as to the fitness of a specific party adherent for a specific available position,
the view of the party leaders should, with very rare exceptions, be govern-
ing. The personnel technicians should not be expected or asked to base
their professional conclusions upon political considerations; their sole task
27 - Suggested Patronage Program - FT
is to discover one or more available positions which, as far as they can de-
termine from the information available, the job seeker is qualified to fill.
The party leaders, however, should rather meticulously refrain from fre-
quently riding rough shod over the findings of the personnel technicians. It
is doubtful whether, in either the long run or the short run, there is any party
advantage in appointing a party adherent to a position which he is only poorly
qualified to fill. At the outset the appointing authority is likely to be dis-
pleased; after all, he needs competent workers in getting the work of his unit
done. Then, too, public and voter disapproval almost surely comes sooner
or later. Finally, real trouble develops when the time comes to consider
giving permanent status to the indefinite or temporary appointee; then the
conclusion of the personnel technicians must prevail and they cannot be ex-
pected to compromise their professional integrity however fallible their find-
ings may seem to others.
28 - Suggested Patronage Program - FT
H - MAKING INDEFINITE, TEMPORARY, AND OTHER TYPES OF
APPOINTMENTS NOT GIVING PERMANENT STATUS
When the selection of the specific party adherent to be appointed to a
specific position has been made, the appropriate party leader should inform
the appointing authority, through the appropriate channels, of the decision
and request that he proceed to make the indefinite, temporary, or other
type of appointment not giving permanent status. Normally the appointing
authority is consulted and aids in the course of the matching work; therefore
he is normally ready to take the next step. In any case, the time has come
for him to act. If he balks, it may be advisable to make modifications in
the proposed action. But if he persists in being refractory without good cause,
as sometimes happens, then pressure from on high may be necessary. In
any case, the appointing authority should be allowed reasonable leeway, in
view of the work load, the budget situation, and other pertinent factors, in
choosing the time the appointment becomes effective.
Sooner or later the indefinite, temporary, or other appointment not
giving permanent status must be formally reviewed and approved (or dis-
approved) by the Civil Service Commission. When its own technicians have
participated in the matching process and have concluded that the appointee
has the needed qualifications, Commission approval is likely to be quick
and essentially perf unctory.
29 - Suggested Patronage Program - FT
I - MAKING PERMANENT APPOINTMENTS
During the first months of the incoming administration, practically all
the appointments must of necessity be indefinite or temporary. This is due
to three sets of facts. The first is that with the present set up of the Civil
Service Commission, not a tenth as many examinations are being held as are
necessary and most of these are too general to be of great value or to comply
with legal and technical requirements; it will take some months to build up
the needed staff. Then the examining procedures must be drastically re-
vised. Finally, much reclassification work must precede good examining
work.
By the beginning of the second year of the new administration, if the re-
organization, procedural, and reclassification operations are properly
handled, it will be possible to put into effect the examining procedures neces-
sary under the law to give first probationary and then permanent status to
those having indefinite and temporary appointments, to those brought in
directly from the outside, and to those promoted, with tests each month for
some two hundred classes of positions. Holding such examinations, it
should be noted, is a continuous process once it has been started and should
continue year after year to eliminate, as far as possible, indefinite and
temporary appointments. This is advantageous from the party standpoint,
from the legal standpoint, and from the standpoint of public and voter ap-
proval. In particular, following this course does not leave a million or
30 - Suggested Patronage Program - FT
more appointees at the mercy of the incoming administration when the next
change occurs.
When proper examinations are held, not all those given indefinite and
temporary appointments will win. Nevertheless they have a tremendous ad-
vantage due to the training they have been given while serving as indefinite
and temporary appointees. In addition, the Civil Service Commission certi-
fies three names from the lists it establishes and the appointing authority
can choose any of the three certified (there are exceptions in the case of
veterans versus non-veterans). By selecting reasonably qualified indefinite
and temporary employees in the first place, by giving them training on the
job, by holding examinations which properly put a premium on job knowledge,
and by using the choice of the three certified, the mortality can be held to
small proportions.
In holding the examinations which lead to probationary and then perma-
nent appointments, the salient procedures are in part as follows:
1. When an examination for any class of positions is to be held, the
Civil Service Commission prepares an announcement giving the title of the
commission anronucement giving the title of the
class, the duties, the pay, the places of work, the requirements, the man-
ner of obtaining and filing applications, the time and places the examina-
tions are held, and other significant information.
2. The Civil Service Commission distributes widely copies of the
examination notice. Each indefinite and temporary appointee holding a
31 - Suggested Patronage Program - FT
position allocated to the class is supplied a copy. In addition, enough copies
are supplied to each county chairman in the areas where there are or will be
positions to be filled that he can provide each district or precinct chairman
with at least three copies.
3. The national and state party organizations exert whatever pressure
is necessary to make sure that the county, district, and precinct chairmen
call the announcement to the attention of qualified party adherents and stimu-
late them to obtain, fill out, and submit applications. Such pressure, all
experience shows, is necessary because the appointments are not to be made
tomorrow or next week and many of the local party leaders persistently
fail to look ahead.
4. The Civil Service Commission holds the examination and establishes
an employment list containing the names of those found qualified. It should
be repeated that the indefinite and temporary employees have a tremendous
advantage.
5. The Civil Service Commission certifies to the appointing authority
three names - those highest on the list.
6. The appointing authority makes his selection from the three certi-
fied and gives him a probationary appointment. At this point the appropri-
ate party organization needs to be on the alert to see that the appointing
authority selects from those certified the one having political priority.
7. At the end of the probationary period the appointee, if his services
have been satisfactory, is given permanent status.
32 - Suggested Patronage Program - FT
J - REVAMPING THE PERSONNEL MACHINERY OF THE
NATIONAL GOVERNMENT
In a large service containing millions of positions, widespread personnel
confusion comes about unless there are a comprehensive personnel program,
orderly personnel procedures, and adequate personnel machinery. The
program, the procedures, and the machinery are needed not primarily or
principally for patronage purposes but in order to carry on effectively and
economically the activities undertaken. Lacking the personnel essentials,
however, even patronage matters must be handled in a fashion which is at
best uncertain and which at times becomes bungling. The reason for includ-
ing this section in this discussion of patronage matters is that even if more
compelling reasons for corrective action did not exist, patronage reasons
alone call insistently for early improvements.
The personnel program prescribed at different times by the Congress is
quite comprehensive and as to most essentials sound. First things are put
first - position classification, pay, recruiting, employee ratings, leaves,
and separations. But, since its creation seventy years ago in 1883, the
Civil Service Commission has failed or refused to accept most of the Con-
gressional personnel program and has persisted in substituting another of
its own. It pays lip service to position classification requirements but,
with negligible exceptions, does not use its own classes for pay, recruit-
ing, and other purposes. It merely toys with recruiting problems. Its
33 - Suggested Patronage Program - FT'
shortcomings in this field are graphically represented by its failure to hold
promotion examinations and by the fact that, at this moment, there are nearly
a million employees who have only indefinite and temporary status though many
have been in their positions for years. The pay of federal officers and employees
is not closely and consistently related to the kind, the quantity, and the quality
of the work they are doing; personal factors are governing with distressing fre-
quency and classifications are moved upward in large numbers to bring about
higher pay rates for favorites. Employee rating problems, despite a Congress-
ional mandate dating back to 1923, are mostly untouched. The handling of sep-
arations depends largely - not entirely - upon the varying needs, whims, and
desires of thousands of administrative and supervisory officers. The Commis-
sion has developed into a fine art the practice of running away from major tech-
nical problems. When these became unduly pressing in 1939, Commissioner
Ordway persuaded President Roosevelt to set up the agency personnel units and
give them directions to do personnel tasks vested by law in the Commission;
these agency units, in turn, with a few exceptions have passed the responsibili-
ties given them to the operating officers. From time to time the Commission,
while refusing to tackle seriously major personnel matters, has given consider-
able attention to personnel refinements such as employee training, safety, em-
ployee suggestions, and scholarships of varied kinds. There are two notably
bright areas in this dismal picture; the Commission has accepted the Congress-
ional mandates as to leaves and retirements and has set up fairly adequate
34 - Suggested Patronage Program - FT
even though cumbersome leave and retirement procedures.
As usually happens when major personnel problems are systematically
evaded over a period of years, the personnel procedures have become complex,
uncertain, time consuming, and ineffective. In the actual handling of the person-
nel transactions they are disregarded about as often as not, with the responsible
officer, whenever it pleases him to do so, deciding each action "on its merits" -
which is a euphemistic way of saying he does about as he pleases. Two examples
will show the basic nature of the existing situation. The personnel manual, sup-
posed to be governing, now contains almost a thousand large printed pages and
is still growing; it is supplemented by even more voluminous circulars, supple-
ments, directives, interpretations, rulings, letters, and other prescriptions.
Even the "experts" in this field are often hard put to it to know what the governing
prescriptions are and the officers who handle personnel matters do not, with
some exceptions, even attempt to master this maze of material. The slowness
is illustrated by the sorry experience of an administrative officer who asked
for the certification of three eligibles from a list for which there was a "regi-
ster. " Several weeks passed before he was able to obtain any action; when he
took pains to find the cause of the delay, he found that this routine transaction
had to be cleared by twenty-four separate and distinct persons of various types
and levels before the certification could be made. In a word, the governing
personnel prescriptions are mostly incomprehensible and are so administered
as practically to stop personnel operations except as the operating officers
35 - Suggested Patronage Program - FT
take matters into their own hands.
These conditions have led, too, to the creation and clumsy operation of
unbelievably complex personnel machinery. The Civil Service Commission has
established fourteen district offices, which is less than a quarter of the number
needed to enable the supervisory operating officers and the personnel technicians
to get together consistently when personnel problems have to be worked out. To
aggravate this situation, the staffs of these district units concern themselves
largely - almost wholly, in fact - with paper work and what they call "policing"
instead of going into the field to advise and assist the operating officers. It
was partly because of these deficiencies that the agency personnel units were
set up. But these, with some exceptions, simply make up another layer of per-
sonnel officers and clerks who make sizable indentations in the taxpayer's dollar,
interpose more delays, and contribute little or nothing to good personnel man-
agement. There has also been much talk of "decentralization" but this boat
too has been missed. The need is for geographical, not departmental, decen-
tralization - but the agency personnel units, again with some exceptions, oper-
ate from Washington even to a greater degree than the Civil Service Commis-
sion. The operating officer in Kansas City or Houston or Elmira or Butte or
Providence who has a troublesome personnel matter hanging over his head has
very slight chance indeed to get first or other aid from the personnel tech-
nician who should but does not call upon him to help arrive at a legal, sound,
and prompt decision.
36 - Suggested Patronage Program - FT
Such personnel conditions call insistently for correction. Remedial
action is needed not merely to make possible the effective handling of patron-
age matters but much more importantly to contribute to the effective and economi-
cal operation of the executive branch of the national government. Fortunately
there is no basic conflict in general and patronage objectives; in fact, if the
procedures set forth herein are accepted, each for the time being at least,
ties in with the other. Therefore in the following paragraphs the rather obvious
corrective measures are briefly outlined.
The first need is for a properly manned Civil Service Commission.
Without that little improvement can be expected. The new members should be
carefully selected. At least two of the three should have comprehensive per-
sonnel know how. Good intentions, industry, high public standing, political
availability, a high order of eloquence, civic consciousness, accomplishments
in other fields, and the like, while highly desirable, cannot suffice to clean up
the personnel mess. The first requisite is proved ability to organize, direct,
and participate in the actual operation of large scale personnel operations as
they are carried on through a central personnel agency. Closely allied is
proved ability to work harmoniously with high placed persons of diverse types;
these include the President, the Congressional leaders, the heads of the sev-
eral agencies, and the officers of business, civic, and employee groups. The
limited personnel accomplishments of eminent and admirable citizens like
Harry Mitchell, Leonard D. White, Samuel Ordway, Arthur S. Flemming,
37 - Suggested Patronage Program - FT
Frances Perkins, and Robert Ramspeck, to mention only a few, shows quite
conclusively that the civil service commissioner without personnel know how
gets exactly nowhere when confronted with large scale personnel disorder, con-
fusion, mismanagement, and ineptitude. Of such far reaching importance is the
make up of the Civil Service Commission that it seems worth while to indicate
at least one possible course of action.
For Chairman of the Commission, some such man as Robert C. Smith,
a Virginia Republican, is essential. Mr. Smith, as Personnel Director for
the Department of Labor, developed for that Department a sound personnel pro-
gram despite the opposition and sniping of the Civil Service Commission's staff
and won the support and understanding of the southern leaders in the Congress.
Mr. Smith left the Department of Labor in 1946 and is now Director of Indus-
trial Relations for the Pullman Standard Car Manufacturing Company, where
he is doing notable personnel work in the business field.
Mr. Smith, if appointed Chairman, would need the help of Charles P.
Messick, a New Jersey Republican. During a period covering thirty years
Mr. Messick was the principal figure in building up and maintaining a person-
nel system for the New Jersey state government and for numerous local gov-
ernments which grew to have a total of sixty thousand positions. He gave major
attention at all times to the personnel fundamentals - position classification,
pay, recruiting, ratings, leaves, and separations - but did not neglect the
personnel refinements when the personnel stage was properly set for them.
38 - Suggested Patronage Program - FT
He enlisted the understanding collaboration of Governors, legislative groups,
operating officers, civic organizations, and employee groups. He has high
professional and political standing. More important, he, more than any other
living person in the United States, has been successful in building, operating,
and maintaining a comprehensive and sound personnel system on a large scale.
The third member to work with Mr. Smith and Mr. Messick should
probably be a woman from the middle west or the far west. She would not need
to be a personnel technician but should be well and favorably known among those
active in the women's organizations and should be able to explain the personnel
program to them, including the patronage angles, and win their understanding
support.
The second need is that the Civil Service Commission and all its agents
accept the personnel program prescribed by the Congress and abandon that of
its own devising. Such acceptance should be one of the conditions of appoint-
ment to the Commission. The Congressional program, moreover, must be
given practical effect, not regarded with a jaundiced eye. It may seem far
fetched to insist on this point. But seventy years of rather consistent flouting
of the Congressional mandates shows that acceptance of the Congressional per-
sonnel program is of first importance.
The third need is for proper civil service rules to take the place of the
present jumble of rules, manuals, circulars, directives, interpretations,
rulings, and other prescriptions. The new rules should be so worded as to
39 - Suggested Patronage Program - FT
be clear and understandable, so comprehensive as to cover the several types
of personnel transactions, and so explicit as to indicate unmistakably the re-
sponsibilities, in originating and passing upon personnel transactions, of the
administrative and supervisory officers, the employees, and the personnel
technicians. The civil service rules are promulgated by the President but the
Civil Service Commission and its staff normally assist him in their drafting.
The fourth need is the proper organization and manning of the Commis-
sion's staff. There is no need, in this discussion, to go into the details of this
matter. But attention may well be called to a few essentials. The headquarters
staff in Washington should be so organized and operated as to provide the basic
personnel tools and procedures. These include the working out of the details
of the personnel program as needed to effectuate the Congressional mandates;
the development of the detailed operating procedures; providing quarters and
facilities for the district organizations; the development (not the administra-
tion) of the classification and pay plans; the construction (not the giving) of
tests; and the development of the employee rating system. The administration
of the personnel program should be handled through the district organizations.
About seventy-five districts are needed to make it possible for the personnel
technicians to visit and work with the operating officers who have a part in
the handling of classification, pay, recruiting, rating, leave, separation, and
other personnel operations. They should also make sure, in the course of
their visits, that the prescriptions contained in the law and the rules are under-
40 - Suggested Patronage Program - FT
stood and observed.
The fifth need is for the building up of competent technical and clerical
staffs. This means practically a clean sweep of the present incumbents in the
top three or four technical levels; they have shown conclusively year in and year
out that they have neither the will nor the capacity to cope with the complex
organization and operating problems. A sizable fraction of those in the lower
technical levels can probably be salvaged despite their training in false and un-
sound conceptions and practices. In the main, however, a new technical staff
would undoubtedly have to be built up by bringing in from the outside those who
have shown competence in the operation of sound state and local personnel
systems and by finding others with the basic traits needed and giving them the
proper technical training. The present clerical staff is capable and almost
surely could handle the paper work well when the unnecessary and time consum-
ing operations are eliminated. The new technical and clerical staffs at head-
quarters and in the district offices would almost surely be smaller than the
present staffs if account is taken of the numerous agency employees now assigned
to the Civil Service Commission (principally from the Post Office Department).
As to the agency personnel units, they cost millions of dollars to op-
erate, slow up personnel operations, interpose one more personnel layer,
and contribute little to effective personnel management. With the staff of
the Civil Service Commission properly organized and manned, they would
41 - Suggested Patronage Program - FT
become a useless fifth wheel on the personnel wagon. They should be elimi-
nated in their entirety. Since they were created by executive order, they can
be discontinued in the same way.
With the Civil Service Commission organized, manned, and operated
in the manner outlined in this section, large and small personnel matters could
be dealt with effectively and fruitfully - including the handling of patronage.
42 - Suggested Patronage Program - FT
K - SUPPLEMENTAL OBSERVATIONS
No attempt has been made in the preceding sections to set forth every de-
tail of the suggested patronage program. Many of the implications have been
passed over lightly or not even mentioned. It seems desirable in this final sec-
tion to discuss briefly several significant matters.
First of all, it must be fairly obvious that the patronage situation is in a con-
stant state of flux. As some party followers are given appointments, the number
of openings available for others decrease accordingly. But the constant labor
turnover works in the opposite direction. At the present time there are few lists
of eligibles and those have been made up without calling the openings generally
and specifically to the attention of party adherents. With good personnel and po-
litical management the number of lists will increase markedly after a few months
and on them the names of party adherents will predominate. Even the reclassifi-
cation of existing positions, which should be done early and on a large scale,
leads to many changes in the incumbents of the positions reclassified. In brief,
the personnel situation does not become and remain static.
In the second place, the top level Republicans, in making their selections
of those to be appointed to the higher posts, or of any others in whom they have
a personal interest, are likely to need a good deal of information, both specific
and reliable, about the duties of positions, legal requirements, customs, and
work conditions. It is therefore suggested that a request be made for the im-
43 - Suggested Patronage Program - FT
mediate detail, possibly in a part time capacity, of three or four trustworthy
personnel technicians who know their way about in the existing personnel maze
and who cannot only collect factual information but who can also translate the
prevailing personnel and position gobbledygook often resorted to into understand-
able English. Almost every agency, when a request for information comes to it,
will almost surely go through the motions of supplying whatever is requested.
But it does not follow that in every case such information will be understandable,
complete, and reliable.
Thirdly, it would be a patronage mistake of the first order not to enlist the
collaboration of some or most of the Republican members of the Congress in
handling patronage matters. In any case many of them will be in the picture.
They can be very helpful indeed in obtaining and appraising information about
job seekers, in conveying reliable information to them, in convincing them that
they must accept the most suitable available position, and in many other ways.
Failure in the preceding sections to make specific mention of Congressional
collaboration should not lead to the conclusion that it is looked upon as unnec-
essary or unimportant. Just the opposite is the case.
Closely related is the matter of building up Republican party organizations
in the southern states. Such action can be vastly facilitated by the use of
patronage or retarded by withholding patronage. There is no legal, technical,
or political reason why those engaged in building up these local Republican
organizations should be regarded as outcasts when federal civilian positions
44 - Suggested Patronage Program - FT
in their respective areas are to be filled. On the other hand, there is every
reason why they should be encouraged to make known their desires as to the
appointment of qualified persons to available positions.
Finally, if some such patronage program as that outlined herein is adopted,
the matter of centralization and decentralization among and within the national,
state, and local party organizations will frequently arise. There is no known
formula which indicates unmistakably what course is best in any given situation.
It may be rather confidently concluded, however, that the national organization
should consciously, after proper consultation with those concerned, including
the state and local groups, decide upon the patronage program and the broad
procedures to put it into effect; that every task which the state and local organi-
zations are organized and manned to do well should be left to them; and that the
national organization will find it necessary, if the patronage ball is to be kept
rolling, to supply a good deal of stimulation and guidance. It need hardly be
added that most of the arrangements for appointments to positions in Washington
and abroad should be handled by the national organization.
Ehrlichman
0
DETERMINED TO BE AN
ADMINISTRATIVE MARKING
E.O. 12065, Section 6-102
By RM
MRI,
Date 5-27-80
CONFIDENTIAL
LIST OF NEW YORK POSITIONS
November 22, 1968
Note: In addition, Ambassadors and all Chairmen
and Members (as opposed to Staff) of Independent
Agencies are deemed included in the New York cat-
egory whether or not listed herein.
I. Bureau of the Budget
1. Director
2. Deputy Director
3. Assistant Director
4. Assistant Director
5. Assistant Director
II. Council of Economic Advisers
6. Chairman
7. Member
8. Member
9. Executive Director, Cabinet Commission on Price Stability
III. National Security Council
10. Executive Secretary
IV. National Council on Marine Resources and Engineering Development
11. Executive Secretary
V. National Aeronautics and Space Council
12. Executive Secretary
VI. Office of Economic Opportunity
13. Director
14. Deputy Director
15. Community Action Program, Assistant Director
16. Job Corps, Assistant Director
17. VISTA, Assistant Director
18. Office for the Aged, Assistant Director
19. Office of Rural Affairs, Assistant Director
20. Office of Research, Plans, Program, and Evaluations, Ass't Director
VII. Office of Emergency Planning
21. Director
22. Deputy Director
23. Assistant Director-Special Assistant to the President for Tele-
communications Management
24. Assistant Director
25. Assistant Director
26. General Counsel
27. Director, Liaison Office
28. Director, Office of Information
VIII. Office of Science and Technology
29. Special Assistant to the President, Director
30. Deputy Director
-2-
IX. Office of the Special Representative for Trade Negotiations
31. Special Representative
32. Deputy Special Representative
X. President's Committee on Consumer Interests
33. Director for Public Affairs
XI. President's Council on Youth Opportunity
34. Executive Director
XII. Department of State
35. Secretary of State
36. Under Secretary of State
37. Ambassador-at-Large
38. Ambassador-at-Large
39. Under Secretary of State for Political Affairs
40. Deputy Under Secretary of State for Political Affairs
41. Deputy Under Secretary of State for Administration
42. Assistant Secretary of State for Congressional Relations
43.
11
"
"
"
"
African Affairs
44.
"
"
"
"
"
Inter-American Affairs
45.
"
"
"
"
"
European Affairs
46.
"
"
"
"
"
East Asian and Pacific Affairs
47.
"
"
"
"
"
Near Eastern and South Asian Affairs
48
"
"
"
"
"
Economic Affairs
49.
"
"
"
"
"
Educational and Cultural Affairs
50.
"
"
"
"
"
International Organization Affairs
51.
"
"
"
"
"
Public Affairs
52.
"
"
"
"
"
Administration
53. Counselor of the Department
54. Legal Adviser
55. Administrator, SCA
56. Inspector General - Foreign Assistance
57. Deputy Inspector General - Foreign Assistance
58. Chief of Protocol (International Organizations)
59. Director, Bureau of Intelligence and Research (INternational Org's)
60. U. S. Representative to the U.N.
61. Deputy Representative to the U. N. and Deputy Representative in
Security Council
62. Deputy Representative in Security Council of the U.N. with personal
rank of Ambassador
63. Administrator, Agency for International Development
64. Deputy Administrator, Agency for International Development
65. Assistant Administrator, Office of Private Resources (AID)
66. Assistant Administrator, Office of Program and Policy Coordination
(AID)
67. Assistant Administrator, War on Hunger (AID)
68. Assistant Administrator, Bureau for East Asia (AID)
69. Assistant Administrator, Bureau for Viet Nam (AID)
-3-
70. Assistant Administrator for Administration (AID)
71. Assistant Administrator, Bureau for Africa (AID)
72. Assistant Administrator, Bureau for Near East and East Asia (AID)
73. Director, Information Staff (AID)
74. Controller (AID)
75. Deputy Director, Office of Personnel and Manpower (AID)
76. Congressional Liaison Officer (AID)
77. General Counsel (AID)
78. Director, Peace Corps
79. Director, Peace Corps
(Ambassadors on separate list)
XIII. Department of the Treasury
80. Secretary of the Treasury
81. Under Secretary
82. Under Secretary for Monetary Affairs
83. Assistant Secretary
84.
"
"
85.
"
"
86.
"
"
87. General Counsel
88. Comptroller of the Currency
89. Commissioner of Internal Revenue
90. Assistant General Counsel (Chief Counsel, IRS)
91. Treasurer of the United States
92. Deputy Under Secretary for Monetary Affairs
93. Special Assistant to the Secretary (for Enforcement)
94. Commissioner of Customs
XIV. Department of Defense
95. Secretary of Defense
96. Deputy Secretary of Defense
97. Director of Defense Research and Engineering
98. Principal Deputy Director of Defense Research and Engineering
99. Director of Advanced Research Projects Agency
100. Assistant Secretary of Defense (Administration)
101. Assistant Secretary of Defense (Comptroller)
102. Assistant Secretary of Defense (International Security Affairs)
103. Assistant Secretary of Defense
(Installations and Logistics)
104. Assistant Secretary of Defense
(Legislative Affairs)
105. Assistant Secretary of Defense
(Manpower and Reserve Affairs)
106. Assistant Secretary of Defense (Public Affairs)
107. Assistant Secretary of Defense (Systems Analysis)
108. General Counsel
(Department of the Army)
109. Secretary of the Army
110. Under Secretary of the Army
111. Assistant Secretary of the Army (Financial Management)
112. Assistant Secretary of the Army (Installations and Logistics)
113. Assistant Secretary of the Army (Manpower and Reserve Affairs)
-4-
114. Assistant Secretary of the Army (Research and Development)
115. Director of Civil Defense
116. General Counsel
(Department of the Navy)
117. Secretary of the Navy
118. Under Secretary of the Navy
119. Assistant Secretary of the Navy (Installations and Logistics)
120.
"
"
"
"
"
(Research and Development)
121.
"
"
"
"
"
(Financial Management)
122.
"
"
"
"
"
(Manpower and Reserve Affairs)
(Department of the Air Force)
123. Secretary of the Air Force
124. Under Secretary of the Air Force
125. Assistant Secretary ( (Research and Development)
126. Assistant Secretary (Installations and Logistics)
127. Assistant Secretary (Financial Management)
128. Assistant Secretary (Manpower and Reserve Affairs)
129. General Counsel
XV. Department of Justice
130. Attorney General
131. Deputy Attorney General
132. Solicitor General
133. Assistant Attorney General, Antitrust Division
134.
"
"
"
Civil Division
135.
"
"
"
Tax Division
136.
11
"
"
Internal Security Division
137.
"
"
"
Criminal Division
138.
11
"
"
Land and Natural Resources Division
139.
"
"
"
Office of Legal Counsel
140. Administrator, Law Enforcement Assistance
141. Commissioner, Immigration and Naturalization Service
142. Special Assistant for Public Relations
143. Director, Federal Bureau of Investigation
XVI. Post Office Department
144. Postmaster General
145. Deputy Postmaster General
146. Assistant Postmaster General, Personnel
147.
"
"
"
Finance and Administration
148.
"
"
"
Operations
149.
"
"
"
Facilities
150.
"
"
"
Transportation
151.
"
"
11
Research and Engineering
152. General Counsel
153. Special Assistant to the Postmaster General (Public Information)
XVII. Department of the Interior
154. Secretary of the Interior
155. Under Secretary of the Interior
-5-
156. Assistant Secretary (Public Land Management)
157.
"
"
(Water and Power Development)
158.
"
"
(Water Pollution Control)
159.
"
"
(Mineral Resources)
160.
"
"
(Fish and Wildlife)
161. Solicitor
162. Commissioner, Fish and Wildlife Service and Deputy Assistant
Secretary, Fish and Wildlife
163. Commissioner, Bureau of Indian Affairs
164. Director, Bureau of Mines
165. Director, Geological Survey
166. Commissioner, Bureau of Reclamations
167. Assistant to the Secretary and Director of Information
168. Assistant to the Secretary, Congressional Liaison
169. Director, National Park Service
170. Commissioner, Federal Water Pollution Control Administration
XVIII. Department of Agriculture
171. Secretary of Agriculture
172. Under Secretary
173. Assistant Secretary
174.
"
"
175.
"
"
176. General Counsel
XIX. Department of Commerce
177. Secretary of Commerce
178. Under Secretary
179. General Counsel
180. Assistant Secretary for Economic Development
181.
"
"
"
Domestic and International Business
182.
"
"
"
Economic Affairs
183.
"
"
"
Science and Technology
184.
"
"
"
Administration
185. Maritime Administrator
186. Director, Bureau of Census
187. Director, National Bureau of Standards
188. Commissioner, Patent Office
189. Federal Co-Chairman, Ozarks Regional Commission
190.
"
"
Upper Great Lakes Regional Commission
191.
"
"
New ENGland Regional Commission
192.
"
"
Coastal Plains Regional Commission
193.
"
"
Four Corners Regional Commission
194. Special Assistant for Congressional Relations
195. Assistant for Public Affairs
196. Director, Office of Foreign Direct Investments
XX. Department of Labor
197. Secretary of Labor
198. Under Secretary
199. Assistant Secretary
200.
"
"
-6-
201. Assistant Secretary
202.
"
"
203. Solicitor of Labor
204. Administrator of Wage and Hour Divisions
205. Commissioner of Labor Statistics
206. Special Assistant to the Secretary (Office of Legislative Liaison)
XXI. Department of Health, Education and Welfare
207. Secretary
208. Under Secretary
209. Assistant Secretary (Legislation)
210.
"
"
(Education)
211.
"
"
(Health and Scientific Affairs)
212.
"
"
(Planning and Evaluation)
213.
"
"
for Commissioner and Field Service
214. General Counsel
215. Commissioner on Aging (Social and Rehabilitation Service)
216. Chief, Children's Bureau
"
"
"
"
217. Commissioner, Office of Education
218.
"
Social Security Administration
219. Department Assistant Secretary (Legislation)
220. Director, Public Information
221. Administrator, SRS
XXII. Department of Housing and Urban Development
222. Secretary
223. Under Secretary
224. General Counsel
225. Assistant Secretary for Mortgage Credit and Federal Housing
Commissioner
226. Assistant Secretary for Renewal and Housing Assistance
227.
"
"
"
Model Cities and Governmental Relations
228.
"
"
"
Metropolitan Development
229.
"
"
"
Equal Opportunity
230.
"
"
"
Urban Technology and Research
231.
"
"
"
Congressional Services
232. Director of Public Affairs
233. Federal Insurance Administrator
234. President, Federal National Mortgage Association
235. Director, Model Cities Administrator
XXIII. Department of Transportation
236. Secretary
237. Under Secretary
238. General Counsel
239. Assistant Secretary for Policy Development
240.
"
"
"
International Affairs and Special Programs
241.
"
"
"
Research and Technology
242.
"
"
"
Public Affairs
-7-
(Federal Aviation Administration)
243. Administrator
244. Deputy Administrator
245. Assistant Administrator for Congressional Liaison
246. Federal Highway Administrator
247. Director, Bureau of Public Roads
248. Deputy Federal Highway Administrator
249. Administrator, Urban Mass Transportation Administration
250. Administrator, St. Lawrence Seaway Development Corporation
251. Federal Rail Administrator
Independent Agencies
I.
Appalachian Regional Commission
252. Co-Chairman
II. Atomic Energy Commission
253. Commissioner
III. Civil Aeronautics Board
254. General Counsel
IV. District of Columbia Government
255. Commissioner of the District of Columbia
V. Export-Import Bank of the U. S.
256. President and Chairman
257. First Vice President and Vice Chairman
258. Director
259.
"
260.
"
261. Executive Vice President
262. General Counsel
VI. Farm Credit Administration
263. Governor
264. General Counsel
VII. Federal Communications Commission
265. Member (Chairman)
266. General Counsel
VIII. Federal Deposit Insurance Corporation
267. General Counsel
-8-
268. Executive Assistant and Controller
IX. Federal Home Loan Bank Board
269. General Counsel
X. Federal Maritime Commission
270. General Counsel
XI. Federal Mediation and Conciliation Service
271. Director
272. General Counsel
XII. Federal Power Commission
273. General Counsel
XIII. Federal Reserve System, Board of Governors
274. Chairman
275. General Counsel
XIV. Federal Trade Commission
276. General Counsel
XV. General Services Administration
277. Administrator
278. Deputy Administrator
XVI. Foreign Claims Settlement Commission
279. General Counsel
XVII. Indian Claims Commission
280. Chief Counsel
XVIII. Interstate Commerce Commission
281. Chairman
282. Congressional Liaison Officer
XIX. National Aeronautics and Space Administration
283. Administrator
284. Deputy Administrator
285. Assistant Administrator for Public Affairs
286.
"
"
" Legislative Affairs
287. Associate Administrator, NASA Headquarters
288. General Counsel, NASA Headquarters
-9-
XX. National Foundation on the Arts and the Humanities
289. Chairman
XXI. National Labor Relations Board
290. Board Member
XXII. National Science Foundation
291. Director
292. Comptroller
293. General Counsel
294. Head, Congressional and Public Affairs
XXIII. Securities and Exchange Commissions
295. Commissioner
296. Chief Accountant
297. General Counsel
XXIV. Selective Service System
298. Director
XXV. Small Business Administration
298. Administrator
299. Assistant Administrator (Congressional and Public Affairs)
300. Deputy Administrator
XXVI. Subversive Activities Control Board
301. Member
302. Member
XXVII. U.S. Arms Control and Disarmament Agency
303. Director
304. Deputy Director
XXVIII. Tennessee Valley Authority
305. Chairman
XXIX. U. S. Civil Service Commission
306. Commissioner
XXX. U. S. Information Agency
307. Director
308. Deputy Director
-10-
309. Member
310. Liaison Officer (Congressional) Office of the General Counsel
XXXI. U.S. Tariff Commission
311. Commissioner
312.
"
XXXII. Veteran's Administration
313. Administrator of Veterans' Affairs
314. Deputy Administrator
315. General Counsel
XXXIII. Commission on Civil Rights
316. Staff Director
317. Deputy Staff Director
BROOKINGS
PUBLICATIONS
CHECKLIST
JULY 1968
The Brookings Institution is a nonprofit, nonpartisan organization devoted to research, educa-
tion, and publication in economics, governmental studies, and foreign policy.
In addition to the books listed below, which may be ordered through bookstores or directly
from the Institution, Brookings issues an Annual Report, a quarterly Bulletin, reprints of articles by
staff members, and a Research Report Series summarizing highlights of its studies. Further infor-
mation about these publications may be obtained by writing the Publications Division, Brookings
Institution, 1775 Massachusetts Ave., N.W., Washington, D. C. 20036.
Complete Alphabetical List of Titles Page 2
Index of Authors Page 14
SELECTED TITLES
RECENT ECONOMIC STUDIES
Britain's Economic Prospects, by Richard E. Caves
Social Security: Perspectives for Reform, by Joseph
and Associates.
7.50
A. Pechman, Henry J. Aaron, Michael Taussig.
6.75
Distance and Development: Transport and Com-
munications in India, by Wilfred Owen.
5.00
European Economic Integration and the United
The Wage-Price Guideposts, by John Sheahan.
States, by Lawrence B. Krause.
6.75
Paper 2.50 Cloth 6.75
Policy Simulations with an Econometric Model, by
Problems in Public Expenditure Analysis, Samuel
Gary Fromm and Paul Taubman.
6.00
B. Chase, Jr., ed.
6.75
RECENT GOVERNMENTAL STUDIES
Politics and Policy: Social and Economic Issues
Science Policy and the University, Harold Orlans,
from Eisenhower to Johnson, by James L.
ed.
Paper 2.95 Cloth 7.50
Sundquist.
Paper 3.50 Cloth 8.75
Every Second Year: Congressional Behavior and
Government Contracting and Technological
the Two-Year Term, by Charles O. Jones.
Change, by Clarence H. Danhof.
8.75
Paper 2.25 Cloth 6.00
Party Leaders in the House of Representatives, by
National Election of 1964, Milton C. Cummings,
Randall B. Ripley.
Paper 2.50 Cloth 6.75
Jr., ed.
5.00
RECENT FOREIGN POLICY STUDIES
The United Nations and United States Security
Prospects for Peacekeeping, by Arthur M. Cox.
Policy, by Ruth B. Russell.
10.00
3.95
Development Projects Observed, by Albert O.
Cuba and the United States: Long-Range Perspec-
tives, John Plank, ed.
6.75
Hirschman.
Paper 2.25 Cloth 6.00
A World of Nations: Problems of Political Mod-
Economic Policies Toward Less Developed Coun-
ernization, by Dankwart A. Rustow.
tries, by Harry G. Johnson.
6.75
Paper 2.95 Cloth 7.95