[United States Department of Labor Fifty-First Annual Report, Fiscal Year 1963]
[From the U.S. Government Publishing Office, www.gpo.gov]

SnrvfE 0: FNDUSTT
NOV 17
SAN DL- ;O
PUBLIC LisRARy
Fifty- first Annual Report
U.S. Department of Labor • Fiscal Year 1963

United States
Department of Labor
Annual Report, 1963
UNITED STATES DEPARTMENT OF LABOR
W. Willard Wirtz, Secretary
For sale by the Superintendent of Documents, U.S. Government Printing Office
Washington, D.C. 20402 - Price $1.00 (paper)
3 1336 05750 2966
UNITED STATES DEPARTMENT OF LABOR
Secretary of Labor..................................................................................
Special Assistant to the Secretary.................................................
Special Assistant to the Secretary.................................................
Special Assistant to the Secretary.................................................
Under Secretary of Labor......................................................................
Deputy Under Secretary.................................................................
Special Assistant to the Under Secretary......................................
Assistant to the Under Secretary...................................................
Manpower Administrator....................................................................
Deputy Manpower Administrator for Planning, Research, and
Evaluation, and Director, Office of Manpower, Automation,
and Training............................................................................
Deputy Manpower Administrator for Operations, and Administrator,
Bureau of Employment Security.............................
Administrator, Bureau of Apprenticeship and Training............
Assistant Secretary for Labor-Management Relations........................
Deputy Assistant Secretary for Labor-Management Relations. ..
Director, Office of Welfare and Pension Reports.........................
Commissioner of Labor-Management Reports.............................
Administrator, Wage and Hour and Public Contracts Divisions.
Director, Bureau of Veterans’ Reemployment Rights.................
Assistant Secretary for Labor Standards..............................................
Deputy Assistant Secretary for Labor Standards.........................
Director, Bureau of Labor Standards............................................
Director, Bureau of Employees’ Compensation...........................
Chairman, Employees’ Compensation Appeals Board.................
Director, Women’s Bureau.............................................................
Assistant Secretary of Labor for International Labor Affairs............
Deputy Assistant Secretary for International Labor Affairs, and
Administrator, Bureau of International Labor Affairs........
Assistant Secretary of Labor for Policy Planning and Research........
Commissioner of Labor Statistics..................................................
W. Willard Wirtz 1
John C. Donovan 2
Stanley C. Ruttenberg 3
Samuel V. Merrick
John F. Henning 4
Millard Cass
Jack Howard 5
Robert K. Salyers
John F. Henning 6
Seymour L. Wolfbein 7
Robert C. Goodwin 8
Edward E. Goshen
James J. Reynolds
Nelson M. Bortz
Frank M. Kleiler
John L. Holcombe
Clarence T. Lundquist
Hugh W. Bradley
Esther Peterson
Morris Weisz
Arthur W. Motley
William McCauley
Theodore M. Schwartz
Esther Peterson
George L-P Weaver
Harry Weiss
Daniel P. Moynihan 8
Ewan Clague
Solicitor of Labor................................................................................... Charles Donahue
Deputy Solicitor of Labor..............................................................
Administrative Assistant Secretary.......................................................
Deputy Administrative Assistant Secretary..................................
Assistant Administrative Assistant Secretary and Director of
Personnel......................................................................................
N. Thompson Powers
Leo R. Werts
V. S. Hudson
Edward J. McVeigh
Librarian.......................................................................................... Margaret F. Brickett
Director, Office of Information, Publications, and Reports................. John W. Leslie
i Appointed to this position September 25,1962, succeeding Arthur J. Goldberg, who was appointed to
the U.S. Supreme Comt.
2 Appointed to this position October 22,1962.
2 Appointed to this position January 7,1963.
«Appointed to this position October 10,1962, succeeding W. Willard Wirtz.
2 Assigned to this position January 1, 1963, succeeding John C. Donovan, who was appointed Special
Assistant to the Secretary October 22, 1962.
2 Designated to this position February 19,1963, in addition to his responsibilities as Under Secretary.
’ Designated Deputy Manpower Administrator February 19, 1963, in addition to his responsibilities as
Director, OMAT.
2 Designated Deputy Manpower Administrator February 19,1963, in addition to his responsibilities as
Administrator, BES.
»Appointed to this position March 8, 1963, from the position of Executive Assistant to the Secretary.
ii
UNITED STATES DEPARTMENT OF LADOR
ANNUAL REPORT, 1963
CONTENTS
Page
Report of the Secretary of Labor............................................ 3
APPENDICES
Reports of the Office of the Secretary
Administrative Assistant Secretary........................................ n
Director of Information, Publications, and Reports.................... 2.1
Solicitor of Labor............................................................................ 2.3
Bureau Reports
Manpower Administration.................................................................. 41
Bureau of Apprenticeship and Training................................. 45
Bureau of Employment Security................................................. 51
Office of Manpower, Automation, and Training................. 109
Bureau of Employees’ Compensation............................................. 119
Employees’ Compensation Appeals Board........................................ 133
Bureau of International Labor Affairs.............................................. 137
Bureau of Labor-Management Reports.......................................... 149
Bureau of Labor Standards................................................................. 171
Bureau of Labor Statistics.................................................................. 2.03
Bureau of Veterans’ Reemployment Rights...................................... 2.2.5
Wage and Hour and Public Contracts Divisions.......................... 2.2.9
Office of Welfare and Pension Plans.................................................. 2.77
Women’s Bureau.................................................................................. 2.85
iii

REPORT OF THE SECRETARY OF LABOR
I

REPORT OF THE SECRETARY OF LABOR
During 1963, the Department of Labor entered the second half-century
of its service to the Nation. At the same time, the country was being
made aware for the first time of two new revolutions affecting men and
work.
For it was in the Department’s 51st year that the United States first
concentrated its attention on the great manpower revolution brought
on by rapid technological advancement. And, in the hot summer of that
year, we were all made aware that the struggle for equal rights had
suddenly become a struggle for equal opportunities.
The Labor Department was in the forefront of the Government’s response
to both revolutions.
It strengthened its organizational structure to meet the challenge of
the manpower revolution, and prepared the historic First Manpower
Report of the President, incorporating the Nation’s commitment to the
idea that there are to be no human hostages left in the wake of progress.
Administratively, one of the Department’s major undertakings in 1963
was the launching of the manpower development and training program—a
project of far-reaching social and economic significance for the Nation.
The attention of the Department, in this 51st year, became focused more
clearly than ever upon the central problem of manpower development,
use, and need. Equipped with the research and training authority of the
Manpower Development and Training Act, the Department began, for the
first time in the Nation’s history, to draw up detailed balance sheets of
our manpower sources. Examination into the causes and nature of continued
unemployment, inquiries into the impact of technological change
upon the labor force, estimates of the cost of discrimination, assessment
of the primary importance of proper education and training in a modern
economy—all of the resources of the Department have been brought to
bear upon these fundamental considerations.
And as framers of the manpower policies of this Nation, we are challenged
to keep pace with the genius of science. We must bring to the architecture
of manpower policy the degrees of invention, the ingenuity, the boldness
which characterize today’s phenomenal rate of scientific discovery.
We must develop those programs which will safeguard the person who
may, as an individual, be adversely affected by a technological development
which greatly benefits the community as a whole. Our task includes the
responsibility to persuade, to obtain consent, to overcome the force of
inertia represented in men’s desire as individuals for even the incomplete
security they think the status quo gives them.
3
Today, a man’s job is also the uncertain product of unpredictable but
almost certain change.
Within the next 30 days, 500,000 people will move to new employers,
600,000 to a different line of work. And 400,000 to different areas of the
country.
This change will be devastating unless we harness it to our own use.
If we guide change for our benefit, we must first erect an economy capable
of enlarging itself, an economy that offers to each man a meaningful use
of his time and talent.
I think that in terms of our particular interest in achieving a full-employment
economy the largest importance attaches to the stimulation of consumer
purchasing power.
Beyond that, we can and must do better in approaching the problems of
technology. Attention must be given in the private processes of collective
bargaining to the problems presented by automation. We are going to
have to review our seniority systems, our training and retraining activities,
our employment security programs, and our retirement plans to find ways
of assuring that a man’s rights are not destroyed when he has to move
aside for a machine.
Only part of this job can be done privately. The rest of the answer to
it is illustrated by the enactment by Congress of such legislation as the
Manpower Development and Training Act. Under this legislation we will
undertake to train some 400,000 people in the next 3 years.
We are going to need in this decade alone 5 million more skilled workers
than are presently available. It is important that we identify today the
types of jobs that these skilled workers will fill so that we can plan for
the future. Retraining must be devised on a basis of working back from
such knowledge and I am sure we can gear the retraining program to
previously identifiable job opportunities.
The real answer to the change that is upon us is that nothing will make
sense unless we expand the economy to the point where there are another
4 million jobs.
We have vast unmet needs in this country. Our real wealth in meeting
them is the use of the full potential of each individual who wants to work.
When we accomplish this, then we will meet these problems. Retraining
is important in doing that and so are many other factors, but we must
move the economy on to a faster employment pace.
The vantage of 1963—the Department’s 50th anniversary—is the best
one irom which to consider this central challenge of continuing change.
We do not face a world war, as we have done twice in the past. We do
not face the collapse of an entire economic system, as we once did. We
face, rather, the product of success—an economy so dynamic in its technical
ability that it has outstripped the skills of millions, depriving itself in the
process of that many consumers. As in the earlier periods, the Department
will be able to make a contribution to this problem because the
individual remains its central concern.
4
In order to cope more effectively with the mounting problems of manpower,
the Manpower Administration was created in February 1963. This
vital new organization consists of the Bureau of Employment Security,
the Bureau of Apprenticeship and Training, and the Office of Manpower,
Automation, and Training.
In compliance with provisions of the Trade Expansion Act of igSx, BES
took several positive measures. It developed specifications for regulations
and agreements and issued operational procedures as guides to State agencies.
BES also initiated trade adjustment allowance notices to inform State
agencies of industry, firm, and worker petitions filed with the U.S. Tariff
Commission as well as findings of petitions handled by the Commission.
A great deal of additional action was taken by the Department in 1963
in the manpower field.
The Department’s Office of the Solicitor, for example, assisted in drafting
three major pieces of legislation affecting manpower that were enacted
during the year—the Equal Pay Act, the Trade Expansion Act, and amendments
to the Welfare and Pension Plans Disclosure Act.
In fiscal 1963, public employment offices attained their highest jobplacement
level since World War II, placing 6.6 million nonagricultural
workers—x percent above i96x’s record figure.
The Bureau of Apprenticeship and Training executed in March its first
contract for an on-the-job training program. By June, 4X contracts,
providing for the training of 1,6x7 persons in 117 occupations, had been
approved.
Some 30,000 unemployed and underemployed workers were enrolled in
institutional and on-the-job training courses under the auspices of the
Office of Manpower, Automation, and Training. These courses were
tailored to equip trainees with labor market skills currently in demand.
Nine thousand persons were enrolled under the Area Redevelopment Act
and more than 30,000 under the Manpower Development and Training Act.
Counseling services for youth, women, and older workers were implemented
in employment centers, and a special placement and counseling
service for school dropouts was set up.
The Bureau of Employment Security modernized the processing of data
and created a telecommunication network for a nationwide interchange of
labor supply and demand information.
Training projects were approved for 60,000 persons in 49 States, the
District of Columbia, Puerto Rico, and the Virgin Islands. Intensive
research was made on the characteristics of the potential and actual trainees,
and youth problems were dealt with by 18 contracts signed during the year.
The Department worked effectively for equal job opportunities through
the example of its own employment policies, the democratic standards of
its apprenticeship programs, and the power of its influence. It stressed the
necessity of making available more job opportunities for all, in order to
provide equal job opportunities for those to whom they had been denied.
5
Its definitive actions in this field were concentrated to a large’degree on
furthering^employment opportunities of persons from minority groups.
State^employment services, for example, are now required to refer applicants
on a nondiscriminatory basis. Clearly prohibited are the segregation
of applicants and reference to race on records and job-acceptance orders.
The Department sponsored conferences to promote the employment of
Negro college graduates. Presidents and deans of Negro colleges participated
in the national and regional gatherings, which also considered
possible revisions of curricula.
Finally, the Department achieved a good record in regard to equal
opportunities for its own employees. Its personnel rolls showed a 100
percent increase in the number of nonwhites holding managerial and professional
staff positions.
An excellent record in the enforcement of laws affecting millions of
American wage earners—really the entire economy—was compiled in 1963.
A new enforcement mark was set when^i,6o7^cases were adjudicated and
million in back wages recovered under the Fair Labor Standards Act and
Walsh-Healey Public Contracts Act. Determinations under the Davis-
Bacon Act also reached a new high, and bonding provisions of the Welfare
and Pension Plans Disclosure Act were implemented.
The activities of the Bureau of Labor-Management Reports, in its fourth
year of existence, were marked by an increase in civil and criminal prosecutions
under the Labor-Management Reporting and Disclosure Act. The
number of violations reaching litigation almost doubled—rising from 76
in ig6z to 147 in 1963.
BLMR also entered into a new field activity in fiscal 1963 by conducting
104 investigations delegated to it by the Department’s Office of Welfare
and Pension Plans under the amended WPPDA.
Marking the 15th anniversary of the enactment of the Fair Labor Standards
Act and the first full year of enforcement of the 1961 amendments
which extended coverage to certain large enterprises engaged in or producing
goods for commerce, 1963 also witnessed the largest back-wage
disclosures made in enforcement history.
More than $49 million was owed to 311,000 employees, with $19 million
representing unpaid minimum wages and the remainder overtime compensation.
Employers agreed to pay more than $2.0 million to 176,000 underpaid
employees as a result of WHPC investigations.
In addition, investigations of child labor violations revealed that over
10,000 children were illegally employed in nonagricultural work and about
7,000 on farms.
Under the Secretary of Labor’s new enforcement powers stemming from
the Welfare and Pension Plans Disclosure Act, the Office of Welfare and
Pension Plans opened cases involving 63 z possible civil violations. BLMR ’ s
field staff assisted in disposing of 304 alleged violations.
The Office of the Solicitor drafted in fiscal 1963 both standards of conduct
for employee organizations and a code of fair labor practices to implement
6
Executive Order 10988 which concerns employee-management relations in
the Federal service.
In addition, 2.9,771 cases—nearly 1,000 more than the figure for the
previous year—were compensated under the Federal workmen’s compensation
programs. The program for decentralizing adjudication and
servicing claims arising under the Federal Employees’ Compensation Act
was completed, with 135,000 cases being serviced.
In international labor affairs, 1963 featured completion of the interagency
agreement calling for increased departmental participation in the planning
and implementation of the Agency for International Development s overseas
program.
Eight new labor attache posts were established and there was a
strengthening of programs involving trade union work and visits to the
United States of foreign trade unionists. A total of 173 foreign visitors
were programed, with another 553 being referred from other agencies and
organizations.
A large share of the activity in the Department’s Women s Bureau was
centered around intensive efforts to establish the principle of equal pay for
men and women who do the same or comparable work. The Bureau had
long been interested in this program, and was relied upon heavily to supply
data. Efforts of all concerned to secure legislative action culminated in the
adoption of the Equal Pay Act of 1963, signed by the President on June 10.
Work of the President’s Commission on the Status of Women added new
dimensions and responsibilities to current programs.
Efforts were intensified to investigate and alleviate the conditions of
women from low-waged, disadvantaged groups. New studies, for example,
were undertaken in response to demands to include in the Bureau s list of
publications “Negro Women in i960” and “Job Horizons for College
Women in the 1960’s.”
In respect to workers’ health considerations, the Bureau of Labor
Standards took many effective measures. For example, the Bureau initiated
organizational work—as directed by the President to set up in 1964 the
Conference on Occupational Safety.
Also, an analysis was made of 3,300 bills concerning labor standards
from legislatures of 47 States and Puerto Rico, and a study was launched
aimed at improving State administration of problems regarding ionizing
radiation in workmen’s compensation. Finally, there was an intensification
of the program of safety training for State and Federal personnel, and
encouraging progress was noted in reducing injury rates in longshoring
and ship repair.
The concerted and active efforts of the Department and other governmental
agencies concerned with the labor-management area contributed in
1963 to the greatest period of industrial peace the Nation has enjoyed
since the end of World War II.
The ratio of time worked to time lost dropped to the second lowest level
for a comparable period in postwar years in the first 6 months of *1963
7
Another outstanding record was set by major collective bargaining
agreements which covered some x million workers in the first part of the
year. The majority of these laborers received wage increases averaging
3.5 percent.
Missile sites showed only one man-day lost due to labor disputes for
every i,x88 man-days worked; as a result, 99.9X percent of all available
work time on missile sites was used to ready the sites on schedule to receive
weapons and crews.
Furthermore, a program aimed at an ultimate goal of reducing the number
of the Department’s buildings in the Washington area from xo to a single
structure was developed and proposed to Congress.
So, in moving into its second half-century of service, the Department
embarked on a striking new era. The two revolutions of this 51st year
signify the advent of a period when the country will be occupied to an
unprecedented extent with the area of responsibility Congress has charged
to this Department—“the welfare of the wage earners of the United
States.”
This 51st annual report makes it clear that the Department of Labor
entered this period of added responsibilities in a condition of preparedness
and strength. In its organization, its personnel and its morale, the Department
is fully prepared to discharge its duties with efficiency and dedication.
We face the challenge of the future with confidence and pride.
8


OFFICE OF THE ADMINISTRATIVE
ASSISTANT SECRETARY
The Administrative Assistant Secretary is the principal administrative
official of the Department. He is responsible for the budgetary and financial,
personnel, and administrative management; program analysis and
evaluation; organization of the Department; provision of administrative
services; and administration of the Department of Labor Library. He is
assisted by a Deputy Administrative Assistant Secretary, who serves as the
Department’s budget officer and comptroller, and by an Assistant Administrative
Assistant Secretary, who serves as director of personnel.
All major relationships outside the Department on administrative and
management matters are developed and maintained by the Administrative
Assistant Secretary. He also coordinates contacts with the Bureau of the
Budget and the Congress, except for those involving substantive legislation.
BUDGET AND FINANCIAL MANAGEMENT
The Office of Budget Administration and the Office of Financial *Manage
ment were established in fiscal year 1963 to assist the Deputy Administrative
Assistant Secretary in his role as comptroller and chief budget
officer. The Office of Budget Administration provides policy, technical,
and overall administrative guidance to all bureaus and offices of the Department
on budget formulation, presentation, and execution. The Office of
Financial Management provides policy and technical guidance, and furnishes
centralized accounting, payroll, and other financial management services to
the bureaus and offices.
Appropriations and other authorizations for the Department of Labor for
fiscal year 1963 totaled $777 million and provided for about 9,000 positions.
Of this amount, $146 million was for salaries and expenses,1 $zi6 million
for unemployment compensation for Federal employees and ex-servicemen
and injured Federal employees’ claims and expenses, and $414 million from
trust fund authorizations (including $400 million for grants to States for
administrative costs of the employment compensation programs).
Included in these figures are supplemental appropriations made for salary
increases granted by Public Law 87-793 an<^ other supplemental for the
unemployment compensation fund for Federal employees and ex-servicemen
($2.1 million), the employed compensation and claims fund ($3,150,000),
and the trade adjustment activities function ($100,000).
’Including $70 million for the newly created manpower development and training activities.
11
Appropriations and other authorisations, fiscal year 11)63
SALARIES AND EXPENSES
Positions Amount
Bureau of Labor Statistics.......................................................................... i, 31Z $14, 590, 2.50
Revision of Consumer Price Index...................................................... 157 1,364,350
Bureau of International Labor Affairs....................................................... 73 808, 750
Area redevelopment activities.................................................................... 45 11,060,000
Manpower development and training activities....................................... 54Z 70,957,700
Bureau of Apprenticeship and Training..................................................... 555 5, ziz, zoo
Mexican farm labor program, compliance activities.................... 164 1, 387, Z50
Bureau of Veterans’ Reemployment Rights.............................................. 65 65z, 000
Bureau of Labor Standards.......................................................................... 317 -334, Z50
Office of Welfare and Pension Plans........................................................... 189 1, 351, 300
Bureau of Labor-Management Reports...................................................... 550 5, 9Z3, 900
Bureau of Employees’Compensation......................................................... 532. 3,981,800
Women’s Bureau.......................................................................................... 93 930,050
Wage and Hour and Public Contracts Divisions....................................... 1,818 18, Z73, 6co
Office of the Solicitor.................................................................................. 495 4,361,700
Trade adjustment activities........................................................................ iz IQo, 000
Office of the Secretary........................................................................... .... 199 2^093,450
Working capital fund operations......................................................... 363 ...................
Total, salaries and expenses from general funds............................ 7, 481 146, 38Z, 550
Unemployment compensation for Federal employees and ex-servicemen............... 151, 000, 000
Employees’ compensation, claims and expenses...................................................... 65, zzi, 000
Total, benefit and claims from general funds................................................ zi6, zzr, 000
TRUST FUND AUTHORIZATIONS
Office of the Secretary................................................................................................ 235, 800
Office of the Solicitor.................................................................................................. 850
Bureau of Employment Security (salaries and expenses)......................... 1,164 11, 935, 860
Grants to States.......................................................................................................... 400, 000, 000
Reimbursement from Mexican farm labor supply fund (salaries and
expenses)............................................................................................... Z13 z, o48,500
Administration of longshoremen’s rehabilitation program..................... 7 57, 860
Total, trust fund authorizations...................................................... 1, 384 414, 30Z, 870
Total, funds available....................................................................... 8,865 776, 906, 4Z0
PERSONNEL ADMINISTRATION
The Department began development and operation of an aggressive program
for the full and appropriate utilization of employee skills and abilities
and the improvement of employee performance and morale. One of the first
steps was the development and operation of a departmentwide career
counseling and development program for nonprofessional employees. The
program provides testing and career counseling services for all nonprofessional
employees of the Department who request them. Counseling services
and assistance are also provided to employees and supervisors in connection
with a wide variety of problems which tend to affect employee performance
adversely.
Formal or exclusive recognition was granted to io employee unions,
representing over one-half of the Department s employees. Two agreements
were negotiated with the union that represents most of the Department’s
Washington staff. A series of conferences was held, both in Washington
and in the Department’s regional offices, to familiarize executive and supervisory
personnel with the objectives of this program. Thus, the year saw
major steps taken toward the implementation of the program envisioned by
the President’s order on employee-management cooperation.
A departmentwide program of training was undertaken to improve
supervision. Under this program, supervisors were given 40 hours of
instruction and practice in dealing with problems arising in the employeesupervisor
relationship. Other significant training activities included
office practices refresher training to improve stenographic, typing, and
secretarial skills, and assigning of executive and management officials to
seminars in operations research, automatic data processing, and other
management subjects.
Continuing its efforts to anticipate and meet future needs for high quality
managerial ability, the Department widened its program of recruiting from
the Federal service entrance examination and the management intern
examination. A positive effort was made to bring these examinations to
the attention of minority groups.
The Department also extended its stenographer recruiting activities
under a new civil service authority which enabled it to offer career-conditional
appointments to eligibles tested in the field. Nearly 1,2.00 students
were tested by the Department at 70 high schools and 6 colleges in Virginia,
Pennsylvania, Kentucky, and North Carolina. Approximately 600 candidates
attained eligible standing, and from these the Department was able
to fill all existing stenographer and typist vacancies. The total of new
employees in grades GS-i through GS-10 was 2.,641.
The Department of Labor Board of U.S. Civil Service Examiners announced
examinations and established or maintained the following registers:
Labor economist, employment service adviser, social administration adviser,
social insurance research analyst, apprenticeship and training representative,
maritime safety officer and assistant, and State veterans employment representative.
This involved evaluating over 2.,000 applications and answering
over 4,000 inquiries.
The Department’s "Employee Handbook” was revised and reissued in
expanded, looseleaf form, and furnished to all employees and persons
entering on duty.
Employees were given counsel and assistance on many subjects, such as
retirement, employees’ compensation, life insurance, health benefits, personal
finances, and housing. Through the employee health services, the
711—471—64------- 2 13
Department offered inoculations against influenza, polio, and tetanus;
tested for diabetes and glaucoma; and arranged health maintenance examinations
given by the Public Health Service.
New directives were developed and released for (i) evaluating employee
performance in connection with the granting of within-grade increases,
Ql ) preventing conflicts of interest on the part of advisers and consultants,
and (3) setting pay rates for consultants and experts. Revisions of policy
and procedural directives were made in the areas of equal employment
opportunity, position classification, administration of adverse actions,
ethics and conduct, personnel security, transfers to public international
organizations, and protection of the employment and pay status of employees
whose service is interrupted by military duty.
Position classification activity continued at a high level as post-staffing
reviews of new organizations became necessary, major bureaus were reorganized,
and the Manpower Administration was formed. Over 16,000
personnel actions were processed. Employment in the Department at the
close of the fiscal year is shown in the following table: ■
Number of employees on the rolls of the Department of Labor as of June 30, 1963
Bureau or office Total
Full-time paid employees Other
Total Field Total D.C, Field
All bureaus and offices___________________
Office of the Secretary___________ ____ _
Office of the Solicitor_________________
Bureau of Labor Standards___________
Wage and Hour and Public Contracts
Divisions_____________ ______ _____
Bureau of Labor Statistics____________
Bureau of Labor-Management Reports...
Women’s Bureau____________________
Bureau of Apprenticeship and Training...
Bureau of Employees’ Compensation___
Bureau of Employment Security_______
Bureau of Veterans’ Reemployment
Rights------------------------------------------
Bureau of International Labor Affairs—
Office of Manpower, Automation, and
Training__________________________
Office of Welfare and Pension Plans____
666
501
317
1,813
1,837
525
100
586
575
1,932
66
189
307
153
9,198 5,054
630
494
317
1,781
1,633
518
91
584
573
1,879
63
180
303
152
582
311
183
312
1,241
244
83
114
167
1,192
15
180
278
152
4,144
48
183
134
1,469
392
274
8
470
406
687
48
25
369
36
7
32
204
7922
53
39
4
102
21
7
4
24
3921
15
29
41
267
15
28
180
4
38
President’s Committee on Equal Employment
Opportunity____________ 2 2
ORGANIZATION AND MANAGEMENT
A major reorganization of the Department’s manpower activities was
carried out during the year. A Manpower Administration, headed by the
Under Secretary as Manpower Administrator, was established to direct and
coordinate the manpower activities of the Department. The Manpower
Administrator has responsibility for the Department’s manpower programs
and activities. He is assisted by two Deputy Manpower Administrators,
three Assistant Manpower Administrators, and other officials in carrying out
a comprehensive manpower program, which includes research, development,
distribution, utilization, administration, and program support.
14
Labor-management programs and operations were reviewed, including
those under the Welfare and Pension Plans Disclosure Act and the Labor-
Management Reporting and Disclosure Act. Particular emphasis was
placed upon exploring the benefits which might accrue from realigning
these programs and activities under a Labor-Management Services Administration.
1
Underway was a review of the Department’s systems, procedures, and
methods in determining, allocating, and utilizing manpower resources.
This was being done by a joint review team comprised of representatives
of the Bureau of the Budget, the Civil Service Commission, and the Department
of Labor. It is expected that the review will aid in improving
practices for the management, development, and utilization of personnel.
A departmentwide management appraisal and standards project on
paperwork management programs and activities was initiated late in the
fiscal year, with the assistance of the National Archives and Records
Service, General Services Administration. The project is designed to (i)
appraise existing policies, programs, and systems for management of paperwork,
(z) formulate minimum standards as necessary to insure efficient and
economical paperwork management, and (3) provide technical advice,
training, and assistance to bureaus and offices, as necessary, to implement
the standards.
Initiated during the year was a study to examine departmental and bureau
policies and practices in providing administrative management services to
field organizations.
A project was undertaken for the development of a departmentwide
program planning and review system which would provide top staff of the
Department with data essential to the development, guidance, and control
of programs.
A survey was made of personnel management programs and operations
throughout the Department. Among the recommendations under consideration
was the delegation of greater authority to bureau and office heads
and to regional directors in the field of personnel management operations.
A departmentwide test was conducted to determine the benefits and
economies that could be derived by using Government-owned motor
vehicles in lieu of privately owned vehicles for the performance of official
duties. It is estimated that more than $100,000 can be conserved annually
by wider participation in the GSA Motor Pool System. The Department
is negotiating with GSA for the assignment of approximately 350 motor
pool vehicles during fiscal year 1964.
A review was initiated of all youth activities of the Department, for the
purpose of developing improved means for the organization, direction, and
coordination of the Department’s total youth program.
Technical assistance in the areas of organization planning and procedural
development was provided in conjunction with the proposed Youth
Employment Act.
* Established August 21,1963.
15
The Department instituted a system which utilizes automatic data
processing equipment in personnel recordkeeping and statistical reporting.
The system produces many required Civil Service Commission reports on
ADP equipment as a byproduct of the day-to-day processing of personnel
actions. In addition, the system provides up-to-date staffing lists which
are an essential component of the Department’s evolving comprehensive
management reporting system.
A project was initiated for the development of a departmentwide manpower
control system.
A requirements survey was conducted of the organization and administrative
procedures necessary for implementing the Department’s responsibilities
under the Trade Expansion Act of 1961. It was concluded that
major functions associated with carrying out the legislation could be
assigned to existing organizational components in the Department, and that
new organizational components would not be necessary in the immediate
future. Technical assistance was provided in drafting and issuing orders,
regulations, and procedures to carry out the trade agreement, tariff adjustment,
and worker adjustment assistance responsibilities of the Department.
LIBRARY
There was a large increase in all Library activities. The total circulation
was 80,369, a gain of more than 31 percent over the previous year. Over
6,100 reference questions were answered, an increase of over 38 percent.
Volumes cataloged totaled i2.,6ix, a gain of more than 2.3 percent. Three
hundred and ninety-seven volumes were withdrawn from the collection.
The net increase was 11,2.15, raising the total to more than 415,000 cataloged
volumes. In all, 14,495 new cards were added to the catalog, an increase
of 43 percent over the previous year.
A small reference unit was established in the William Building in Silver
Spring, and a collection of books and pamphlets and Library services were
provided to the manpower seminar which is administered by the Bureau of
International Labor Affairs for officials of underdeveloped countries.
ADMINISTRATIVE SERVICES
The following were among the administrative concerns:
1. Space:
The chronic space shortage of fiscal year 1961 carried over into fiscal year
1963 and continued to be one of the Department’s most pressing administrative
problems. Departmental operations were housed in over 10 widely
separated buildings in the District of Columbia metropolitan area. As in
the previous year, this scattering of operations created communications
difficulties and other administrative hardships.
16
Work was centered on a plan to reduce the total number of locations and
simultaneously consolidate each major organizational segment into one
building along with other functionally related organizations, as space
permitted. To this end, the Bureau of Labor Standards was consolidated
in one building and a plan was devised for (T) consolidating the Bureau of
Apprenticeship and Training, Office of Manpower, Automation, and Training,
and the United States Employment Service of the Bureau of Employment
Security in one building; (x) consolidating the Bureau of Labor Statistics,
including its Division of Data Processing, in a second building; and (3)
effecting other improvements by way of relocating certain operations to
create more efficient and homogeneous organizational groupings of personnel
and functions.
To achieve the above and simultaneously meet most of its unmet space
requirements, the Department requested the General Services Administration
to assign approximately 105,000 square feet of new office space in one
building in the downtown area. The space was expected to be available
for occupancy in October 1963. In addition to meeting most of its immediate
needs, the space would enable the Department to reduce its total
number of locations.
On a longer range basis, and in recognition of the Department s chronic
space problems, the General Services Administration initiated action to
obtain congressional approval for construction of a new building in the
District of Columbia capable of housing the entire Department of Labor
headquarters operation.
The new Employment Security Building at 6th Street between Pennsylvania
Avenue and C Street NW., which was started in November 1961,
neared completion at the end of the fiscal year. Occupancy in August 1963
was assured. The building will house the United States Employment
Service for the District of Columbia and the District of Columbia Unemployment
Compensation Board.
Considerable emphasis was placed on plans to consolidate space holdings
in cities where departmental regional operations are located, and to upgrade
substandard or marginal space. Arrangements were made to consolidate
all departmental regional operations in Kansas City, Mo., in one building
and similar operations in Atlanta, Ga., into two adjacent buildings. Action
was initiated to obtain or upgrade space in other cities, including
Chicago, Ill., and work will be continued during the forthcoming fiscal
year on further space consolidations in other cities housing departmental
regional operations.
x. Data processing:
OAAS data processing activities were devoted primarily during the year
to transferring bureau and office payrolls to machine operations. Following
a successful pilot transfer during the preceding year, the end of fiscal year
1963 saw the transfer of approximately 60 percent of all departmental
payrolls.
17
A new program was initiated that accommodates the personnel records
of all employees of the Department and provides improved statistical reporting
on personnel matters plus preparation of departmentwide staffing
patterns and merit staffing reports.
Also of significance was a decision to select a disk computer system for
installation in December 1963. The decision was based on a comprehensive
study by OAAS personnel. The new system is expected to meet efficiently
and effectively the increasing need for faster and more expanded
centralized data processing services.
3. Printing and reproduction:
The reproduction of eight recurring publications was transferred to the
Government Printing Office. The resulting reduction of approximately
19 million reproduction impressions should materially assist the Department’s
central reproduction facilities in handling the increasing amount of
work requested by departmental activities. As with other administrative
services, the increasing number of departmental organizations, reflecting the
increasing program responsibilities of the Department, has had a serious
impact on the Department’s central reproduction facilities. Requisitions
for services increased from 13,934 for fiscal year ig6z to 2.2.,065 fiscal
year 1963, and while reproduction units decreased from 105.7 million to
79.9 million, the total number of pages submitted for reproduction increased
from 111,100 to 190,000, thereby indicating that a larger number of “short
run” type jobs were being received.
Considerable attention was given during the year to staffing changes
and procedural improvements needed because of the changing workload.
However, additional personnel were not added and an improved scheduling
and control system was installed with provision for a central point for
information on jobs in progress.
4. Services and supply:
The transfer of blank forms, publications, and supplies, previously located
on several floors in four different buildings, was completed during the year
and a centralized unit of storage and distribution was inaugurated.
A considerable amount of storage space was converted to office space in
two of the Department’s principal buildings. Consolidation of the storage
and distribution operations opened the way for initiation of a plan to relocate
printing and reproduction operations in the Main Labor Building
basement to bring about better functional alignment, improved operations,
and operating economies; relocation of conference rooms from other floors
of the Main Labor Building in order to release space for office use; expansion
and improvement of the Secretary’s dining room, officials’ dining room,
and the stand operated by the Washington Society for the Blind; plus general
upgrading of all space in the Main Labor Building basement. As of
June 30, 1963, the architectural and engineering plans for the Main Labor
Building alteration project were in the prefinal specification preparation
stage, and actual renovation work was expected to be initiated in December
1963.
18
Related to the above was the completion of an exhibit hall in space
adjoining the Main Labor Building basement to house a permanent Department
of Labor Museum. The museum was opened in March 1963 as
part of the Department’s 50th anniversary celebration.
Telephone service for the Silver Spring offices of the Department was
consolidated with the main switchboard through dial satellite equipment
in November 1961.
5. Regional administrative services offices:
One additional office was established during the year in Cleveland,
Ohio, bringing the total of these offices to five. Offices were previously
established in Boston, Chicago, New York, and San Francisco. A total
of 1,845 field personnel in zi6 offices are serviced from these central service
offices.
Plans were completed for the establishment of RASO activities in Atlanta
and Kansas City during fiscal year 1964, and plans were in the developmental
stage for the expansion of services performed at all RASO locations which
are expected to result in more efficient and economic operations, better
utilization of manpower and equipment, and the provision of additional
timely services.
19

OFFICE OF INFORMATION, PUBLICATIONS,
AND REPORTS
Fiscal year 1963 marked the 50th anniversary of the U.S. Department of
Labor, established by act of Congress, March 4, 1913. The Office of Information,
Publications, and Reports joined in the Department’s anniversary
celebration and contributed to its success with three anniversary publications
on labor in America and the Department’s development: “Challenge
and Change,” “The Anvil and the Plow,” and “Labor in America.”
An added attraction of the observance was the establishment of the
U.S. Department of Labor Museum, which exhibits visual displays on outstanding
developments in labor. Created by the Office, the museum will
become a permanent feature of the Department.
In keeping with its primary function—to inform the public of the work
of the Department, its publications, facts compiled by its various bureaus
and offices, and laws enacted—the Office issued news releases and replied
to some 150,000 inquiries from labor, business, and the public. The Office,
headed by a Director, serves as chief coordinator between the Department
and the press, radio, television, and other public information media, including
approximately 550 labor and 3,000 weekly newspapers.
The Office reviewed publications issued by the various bureaus and
offices of the Department for consistency with Department policy. It compiled
and edited publications of departmentwide significance, and prepared
exhibits on labor and economic matters.
The Office’s visual services division participated in the anniversary
celebration with the designing, construction, and processing of 600 posters,
15 portable exhibits, and 3 large backdrops. Art work and designs for the
Office’s anniversary publications were contributed by the visual services
division, which also provided art work and designs for 42. bureau and
departmental publications of varied types and constructed 60 new portable
exhibits and 15 large exhibits for the Department.
Through a silk-screening reproduction process, the division prepared
approximately 3,500 posters, training charts, and mailing pieces. The
photographic section processed approximately 30,000 prints and color
slides.
To aid in the understanding of the Department and its work, Office
staff participated in major State, national, and international conferences
and conventions sponsored by labor unions and business and professional
organizations.
21

OFFICE OF THE SOLICITOR
The displacement of workers by automation, the pressing need for job
training and retraining, and the special problems of youth and minority
groups were matters of particular concern to the Department during fiscal
year 1963. The Solicitor, as the chief legal officer of the Department as
well as a policy official and adviser, is responsible for the legal aspects of
the Depirtment’s activities in these areas. He advises the Secretary, the
Under Secretary, and the Assistant Secretaries, and also performs many diversified
types of legal services which are required in the operations of the
various bureaus and offices of the Department. One of the more significant
areas of his responsibility is the handling of legal proceedings arising under
laws administered and enforced by the Department. He also serves as top
legal adviser to the Secretary in formulating and preparing the Department’s
legislative programs, and in appearances before congressional committees.
In addition to these functions, the Solicitor is authorized to perform
operating functions in connection with the administration and enforcement
of the Davis-Bacon Act and other statutes relating to the predetermination
and payment of prevailing wages on Federal and federally financed and
assisted construction projects. During the year, he testified at length
before a House special labor subcommittee on the administration of these
laws. The Solicitor is also vested with final authority with respect to
tort claims arising out of the Department’s activities.
The reorganization of the Solicitor’s Office during the past year—aimed
primarily at developing a more closely coordinated staff, with more opportunity
for diversification of work assignments—resulted in the consolidation
of the eight divisions of the Office into five. The new arrangement merges
the General Interpretative Services Division and the Division of Manpower
and Employment Security into a Division of Interpretations and Opinions.
The Litigation Division now performs the functions of three former divisions:
Trial Litigation and Administrative Legal Services, Supreme Court
and Appellate Litigation, and Employees’ Compensation. The other
three divisions are Legislation, Labor-Management Laws, and Wage Determinations.
The immediate Office of the Solicitor is composed of the
Solicitor, his Deputy, and several attorneys as special assistants assigned
to the handling of special legal problems.
In addition to the Washington office, a staff of attorneys is maintained
in field offices throughout the United States and Puerto Rico, principally
to carry out the litigation responsibilities of the Department.
23
LITIGATION DIVISION
This Division, created during the year by the merger o£ the Divisions of
Trial Litigation and Administrative Legal Services, Supreme Court and
Appellate Litigation, and Employees’ Compensation, is charged mainly
with the Department’s litigation and quasi-litigation responsibilities.
These functions are performed chiefly in connection with the enforcement
of wage-hour legislation (Fair Labor Standards Act and the Walsh-Healey
Public Contracts Act), workmen’s compensation legislation (Federal Employees’
Compensation Act, the Longshoremen’s and Harbor Workers’
Compensation Act, the District of Columbia Workmen’s Compensation
Act, and related statutes), and maritime safety legislation (Public Law
85-741, 71 Stat. 835).
Wage-Hour Litigation
Trial Litigation
A record number of cases, 1,607, were instituted this year under the Fair
Labor Standards Act and the Walsh-Healey Public Contracts Act. Of
these, 1,469 were civil actions (1,2.19 contested and 2.50 for consent orders).
It was necessary to bring 40 contempt proceedings to enforce injunctions
previously obtained. Forty-eight criminal prosecutions were instituted,
resulting in fines totaling $131,811. Thirty-six administrative enforcement
proceedings were brought under the Walsh-Healey Public Contracts
Act. Over 1,500 cases of all types were completed during the year.
More than $1,000,000 in back wages was recovered for several thousand
employees as a result of litigation activity—$188,000 under the Walsh-
Healey Act and the balance under the Fair Labor Standards Act. Most
of these sums were recovered in 140 contested injunction cases in which
monetary relief was sought on behalf of underpaid employees as authorized
by the 1961 amendment to the Fair Labor Standards Act. The number of
such cases shows an upward trend.
Appellate Litigation
During the fiscal year, 41 briefs were filed in appellate proceedings—40
under the Fair Labor Standards Act and 1 under the Walsh-Healey Public
Contracts Act. Of these, two were filed in the Supreme Court in opposition
to petitions for writ of certiorari and the rest in the U.S. courts of appeals.
Twenty-one appellate decisions were rendered under these statutes. The
Department’s position was upheld in 16 and rejected in 3. In the remaining
two, the Department was successful in part.
As usual, most of the FLSA appeals were concerned with questions of
coverage and exemption. Among the more important cases on the act’s
coverage was Bear Creek Mining Co. v. Wirt^, 317 F. id 67 (C.A. 1), in which
the act was held to cover prospecting operations for a large copper company,
despite uncertainty as to whether any ore would ever be found or produced,
24
and the many years that might elapse before actual mining could be started,
if ever. The court found “that exploration of new sources of supply is
normally a continuing need’’ of the mining industry and is for that reason
“closely related’’ and “directly essential” to the production of ore within
the meaning of the act.
In another case, Wirtz v. Hello L. Peer Co., 314 F. 759 (C.A. 4), the act
was held to cover the construction of a diversion channel, built as part of a
concededly covered dam and reservoir project, but chosen over other
alternatives in order to prevent the main project from flooding local college
lands. The court ruled that, whatever the reason for choosing a particular
submersion pattern, one or another pattern was necessary for the completion
of the overall project and the alternative chosen therefore shared in the
covered status of the overall project.
The act was held to extend also to a night watchman employed on a
project for construction of a city street carrying a sunstantial amount of
interstate traffic, in Goldbergv. P & L Equipment Co., 311 F. id 88 (C.A. 5),
and in Willmark Service System, Inc. v. Wirtz, 317 F. id 486 (C.A. 8), it
was held to extend to the employees of a “ shopping service” with a nationwide
clientele—specifically the “shoppers” employed in branch offices
who visited the local retail shops of their employer’s customers to check on
the honesty and efficiency of the sales clerks, and sent their reports to the
employer’s out-of-State main office.
A number of the act’s exemption provisions were the subject of judicial
interpretation. In the Willmark decision, the retail exemption was held
not to apply to the “shopping service” since Congress by the 1949 amendment
“had no intention to broaden the fields of business enterprise to
which the exemption would apply” and “Willmark, rather obviously,
does not qualify as an establishment ‘ plainly and unmistakably’ within
the terms and spirit” of the exemption. In Wirtz v. DuMont, 309 F. id
151 (C.A. 4), the claim of an auto wrecker to be within the retail exemption
was rejected on the ground that his sales of salvaged automobile parts to
repair shops were “sales for resale” within the meaning of the act. In
Wirtz v. Atlanta Life Insurance Co., 311 F. id 646 (C.A. 6), the exemption
for outside salesmen was held not to apply to insurance supervisors who
spent more than 10 percent of their workweek in routine office work not
connected with their own outside sales, even though they spent most of
their time accompanying their salesmen on outside duty. The agricultural
exemption was held, in Wirtz v. Jackson & Perkins Company, 311 F. id 48
(C.A. 1), to apply to the storage employees of a nursery distributor when
handling stock grown on the employer s own farms, however distant, or
on the farms of the employer’s wholly owned subsidiaries, or when handling
stock acquired by emergency purchases to meet temporary shortages, but
not when handling stock purchased by the employer from contract growers.
The exemption in section 7(c) for the first processing of dairy products
was held, in Yogurt Master, Inc. v. Goldberg, 310 F. id 53 (C.A. 5), certiorari
denied 371 U.S. 971, not to apply to the manufacture of dairy products from
25
concentrated skim milk, since concentrated skim milk is itself a processed
product.
The question of compensable work time was again in issue in two cases.
In Aeromotive Metal Products, Inc. v. Wirtz, 311 F. id 72.8 (C.A. 9), a 15-
minute rest period was held to be compensable even though the employees
were free to spend this period in such activities as they might desire and the
interruption had not in fact increased production or reduced absenteeism.
The court of appeals ruled that since the time was involuntarily spent at or
near the plant and that since the rest period of such short duration was
“not under such conditions as would permit the employees to make
beneficial personal use of this time,” the trial court had properly concluded
that the interruption of work was predominantly for the benefit of the
employer. Similarly, in the Willmark case discussed above, frequent but
irregular intervals of idle time spent by the * ‘ shoppers” between assignments
were held to be compensable on the ground that such so-called “free time”
forced on the employees during their workdays was “fortuitous and of no
use or benefit” to the employees.
In another case, it was held that employees are entitled to compensation
in accordance with the requirements of the act even if there is an understanding
that pay is at the discretion of the owner of the business. The
court ruled, in Wirtz v. Leonard, 317 F. zd 768 (C.A. 5), that “the crucial
question is not whether the work was voluntary, but rather whether the
[claimant] was in fact performing services for the benefit of the employer
with the knowledge and approval of the employer . . . .”
A procedural point of considerable importance in the enforcement of the
FLSA was determined in Wirtz v. B.A.C. Steel Products, Inc., 31Z F. zd 14
(C.A. 4). It was held in that case that the defendant employer was not
entitled in pre-trial proceedings to have the Secretary produce the statements
given by employees or former employees to the Department’s investigators.
The decision stressed that the “average employee involved in
this type of action is keenly aware of his dependence upon his employer’s
good will” and concluded that “only by preserving their anonymity can
the government obtain the information necessary to implement the law
properly.”
There were two appellate decisions under the Walsh-Healey Public
Contracts Act. While that statute refers to Government contracts for the
“furnishing of materials, supplies, articles, and equipment,” it was held,
in United States v. Stocks Lincoln-Mercury, 307 F. zd z66 (C.A. 10), to be
applicable to a contract for the furnishing of both materials and services,
where the charges made for the materials were substantially greater than
those for the services. In the same case, the court ruled that it was no
defense that the employer had relied on a contrary opinion of a Department
field supervisor. It held that only the opinion of the Secretary or the
Wage-Hour Administrator can have protective effect under the Portal-to-
Portal Act. In a second case under the Walsh-Healey Public Contracts
Act, United States v. New England Coal & Coke Co., 16 WH Cases 11 (C.A. 1),
26
it was held that a regular dealer is not responsible for compliance with the
act by his suppliers, where the supplies (coal) were not delivered directly
to the Government, but were sent to and commingled with the regular
dealer’s general stockpile from which deliveries were made to other customers
as well as to the Government.
Employees’ Compensation
In the area of employees’ compensation, the principal function of the
Division is to render legal services to the Bureau of Employees Compensation
in the administration of the several Federal workmen s compensation
statutes. These statutes provide benefits to employees and their families
in the event of injury or death occurring in the performance of duty. Approximately
3% million workers are covered—zY million employees of the
Federal Government and i million employees in private enterprise, of
whom 300,000 are private employees in the District of Columbia and 350,000
are longshoremen, ship repairmen, and other maritime workers.
The claims of the Federal employees are governed by the Federal Employees’
Compensation Act. In this program, the Division defends the
administrative decisions of the Bureau in appeals taken by the claimants to
the Employees’ Compensation Appeals Board. The Division participated
in 310 such appeals in the fiscal year. With respect to claims of other
employees, under the several Federal compensation statutes, the Division,
in conjunction with the Department of Justice, defends the administrative
adjudications of the BEC Deputy Commissioners when these decisions are
challenged in the courts by either party. The Division participated in 61
such suits in the fiscal year. Significant court decisions obtained in this
field follow.
1. The Longshoremen’s and Harbor Workers’ Compensation Act was
held to cover an injury sustained by an employee while working on land
beneath a vessel drawn up on a marine railway for repairs. Holland v.
Harrison Brothers Dry Dock and Repair Yard, Inc., 306 F. zd 369 (C.A. 5).
z. An employee’s injury, incurred while on the way home to continue
his work there, was held to have arisen out of and in the course of his
employment, where the employer knew that the claimant’s duties required
him to work after hours. American Mercury Insurance Co. v. Theodore Britton,
314 F. zd Z85 (C.A.D.C.).
3. In the case of an employee found dead at the top of a stairway at the
construction site where he worked, it was held that the Deputy Commissioner
could properly conclude that the death was due to exertion associated
with his employment and was therefore compensable. Harry Alexander,
Inc. n . Charles Einbinder (C.A.D.C.), decided March 8, 1963 •
Another function of the Division in this field is to supervise the prosecution
of subrogation actions against third persons whose negligence has
caused the injury or death of a Federal employee for which the United
States has paid compensation under the Federal Employees Compensation
27
Act. These actions are designed to obtain reimbursement for the compensation
so paid. During the fiscal year, a gross recovery of $3,0x2.,630.18 was
obtained. After deducting the expense of recoveries, a net amount of
$1,2.07,969.16 was available for offset against compensation paid or payable
by the United States to the employees or their dependents.
Other Functions
Among other litigation-connected functions of the Division is the furnishing
of legal services to the Bureau of Labor Standards in connection with
its enforcement of the maritime safety and health program under the Longshoremen’s
and Harbor Workers’ Compensation Act, through formal
administrative proceedings, civil actions, or criminal prosecutions. This
function was placed in the Division in the latter half of the year. One
formal administrative proceeding has since been instituted. It was concluded
upon the employer’s admission of the violations charged and his
undertaking to comply in the future.
The Division is also charged with the legal functions relating to the
administrative settlement under the Tort Claims Act of claims against
the Government arising from acts of Department employees within the
scope of their employment. In the fiscal year, 59 cases raising potential
claims against the Government were reviewed. Seven claims were filed,
and six recommendations made for settlement.
INTERPRETATIONS AND OPINIONS
The Division of Interpretations and Opinions renders legal services in
the area of labor standards, manpower services, unemployment compensation,
veterans’ reemployment rights, and administrative law.
A primary function of the Division involves interpretations of the Fair
Labor Standards Act, the Walsh-Healey Public Contracts Act, the Contract
Work Hours Standards Act, the Federal Employees’ Compensation Act,
and the Longshoremen’s and Harbor Workers’ Compensation Act. During
the 1963 fiscal year, the vast majority of the interpretative opinions rendered
in the labor standards area pertained to the Fair Labor Standards Act.
A smaller but substantial number had to do with the new Contract Work
Hours Standards Act. In addition, several interpretative bulletins were
revised and considerable work was done toward revision of others in anticipation
of the new overtime provisions which became operative September
3, 1963, affecting newly covered employees under the Fair Labor Standards
Amendments of 1961.
The past year saw a substantial broadening of manpower service activities,
primarily in the areas of training and retraining under the Manpower
Development and Training Act and the Area Redevelopment Act. Assistance
was given to departmental bureaus by way of legal opinions and the
drafting of contracts and agreements which were entered into by this
28
Department and various agencies throughout the country to carry out our
expanded responsibilities in the manpower field.
With respect to the area of foreign labor, the Division engaged in a multitude
of activities including furnishing counsel at various wage rate hearings
conducted in the discharge of the Department’s Immigration and Nationality
Act functions. In the same general area, staff attorneys participated
in the development of revised procedures for the implementation of the
Secretary’s certification authority with respect to the admission of alien
workers.
Litigation flowing from foreign labor programs was of special interest
again in the fiscal year 1963. The “commuter” alien situation along the
Texas-Mexico border led to the institution of a private suit by the Texas
State AFL-CIO challenging the validity of the system whereby aliens admitted
to the United States for permanent residence are permitted to reside
in Mexico while crossing the border daily to work in the United States.
It was alleged that these “commuters” are in this manner able to undercut
the wages and working conditions of resident American labor. While
the Texas State AFL-CIO’s action was dismissed in the U.S. District Court
for the District of Columbia, the union has filed notice of its intention to
appeal that decision.
In a case which arose under the Mexican labor program, a landmark
decision upholding the Secretary’s broad authority under the adverse effect
provisions of Public Law 78 was rendered by the U.S. District Court for the
Southern District of California. Limoneira Co., et al. v. et al. represented
a basic challenge to the action of the Department in establishing
statewide adverse effect wage rates for Mexican agricultural workers.
The court’s holding in support of that action is in the process of being
appealed by the farmers who filed the action.
Noteworthy activities in the employment service field included legal
assistance in the establishment of policies and regulations designed to
assure that the facilities of the nationwide system of public employment
offices are made available to all people, without regard to race, creed, or
color.
Federal legislation in the field of unemployment compensation enacted
during the past year included the omnibus bill to make permanent improvements
in the coverage, benefit, and financing provisions of the Federal-State
unemployment compensation system, amendments to the provisions relating
to the ceiling on grants to States for unemployment insurance administration,
adjustments of the Federal unemployment tax rates, and extension
of the period within which States can obligate funds made available under
section 903(c) of the Social Security Act. Regulations and the form for
Federal-State agreements to implement the worker assistance provision of
the Trade Expansion Act of 1962. were drafted and assistance was provided
by this Division in the preparation of procedures.
Proposed and enacted legislation amending the unemployment compensation
laws of 47 States was reviewed and commented on during the year.
711—471—64- 3 29
Several serious questions were raised as to whether those State laws or
proposals met the requirements of Federal law. These and other important
legal issues were analyzed and advice was rendered with respect to the
legal problems involved.
In the discharge of its responsibility to assure that the Department
complies with the provisions of the Administrative Procedure Act and the
Federal Register Act, the Division assisted in the drafting and arranged
for the publication in the Federal Register of 196 documents. Sixty-three
of these were in the nature of amendments to the Code of Federal Regulations.
Among the published documents were minimum wage orders under the
Fair Labor Standards Act for all of the industries in Puerto Rico. Legal
services were provided in connection with the issuance of tentative and
final prevailing minimum wage determinations under the Walsh-Healey
Act for the electric lamp, electronic equipment, scientific and laboratory
instruments, and pump and compressor industries. The Division provided
such services in connection with the tentative determination for the conveyors
and conveying equipment industry. Legal services were furnished
in connection with the final determinations and actions for judicial review
of the motors and generators and machine tools industries. The Solicitor’s
Office also represented the Department in four hearings held under other
rule-making provisions of the Fair Labor Standards Act.
More than 100 legal opinions relating to veterans’ reemployment rights
were prepared or reviewed during fiscal 1963. A large number of cases
were referred to the Justice Department for litigation involving claims
arising under reemployment laws. The 1961 amendments to those laws
were interpreted, and proposals for further amendments were prepared.
In addition to this work, a comprehensive legal guide and digest of all court
decisions and departmental opinion notes in this field was prepared for
publication.
WAGE DETERMINATIONS
The Division of Wage Determinations performs the duties with which
the Secretary of Labor is charged by the Davis-Bacon Act, related statutes,
and Reorganization Plan No. 14 of 1950. The Division predetermines
minimum wages to be paid laborers and mechanics under contracts subject
to the Davis-Bacon Act and related prevailing wage statutes. These
predeterminations reflect the wages found to be prevailing in the city,
town, village, or other civil subdivision of the State in which work is to
be performed. The Division also handles coordination and enforcement
functions vested in the Secretary by Reorganization Plan No. 14 of 1950,
the purpose of which is to achieve coordination of administration and
consistency in the enforcement of minimum wage and overtime statutes
covered by its provisions.
Also of continuing significance in terms of the Division’s responsibilities
was enforcement of the Contract Work Hours Standards Act, enacted in
30
fiscal 1962.. In general, this act replaces the Eight-Hour Laws and provides
a uniform requirement of overtime compensation at time and one-half the
basic rate for hours worked over 8 in a day or 40 in a week. The act, in
addition to covering contracts of the United States which may involve
the employment of laborers and mechanics, also covers contracts which
by law are required to include wage rates predetermined by this Department.
Excepted, however, are projects where the Government’s only
assistance is in the nature of a loan guarantee, or insurance. This refers
to Federal Housing Administration insured housing. Contracts of the
Commodity Credit Corporation and the Tennessee Valley Authority have
been, pursuant to the intent of the Senate as stated in a committee report
on the bill, exempted in regulations issued under section 105 of the act.
Construction contracts under $1,000 have been exempted from the Contract
Work Hours Standards Act.
The enactment of the Public Works Acceleration Act provided additional
funds for construction of public works on an accelerated basis. Passage
of this act substantially increased the Division’s workload. To further
effectuate the purposes of this legislation, the Division gave priority to
such requests, issued countywide determinations for use by any agency
constructing projects under the act, and extended the validity period of
such determinations to no days.
The Division issued 46,397 wage determinations during fiscal year 1963.
A total number of 46,038 items of correspondence were issued in connection
with these wage determination matters.
The Division opened 1,478 enforcement cases. A total of 1,631 cases
were processed to completion, a record yearly high. In those cases involving
serious violations of the various statutes within the scope of
Reorganization Plan No. 14 of 1950, ineligibility sanctions were imposed
against 10 contractors (firms and individuals). As a result of enforcement
actions, more money was collected for more employees than in any previous
year; restitution totaling $548,843.96 was secured for 5,1x8 laborers and
mechanics.
The Division continued during the year the publication of its series of
“all agency” memoranda and Davis-Bacon Act opinions with respect to
coverage problems and related matters. These memoranda and opinions
aided in promoting consistency in the enforcement of statutes within the
purview of Reorganization Plan No. 14 of 195°- addition, the Division
issued a large number of interpretations and opinions to contractors and
employees advising them of their rights and responsibilities under these
statutes.
DIVISION OF LEGISLATION
The recent reorganization of the Solicitor’s Office resulted in a realignment
of the duties and responsibilities of the Legislation Division. As
now constituted, there are five areas of responsibility in the Division
31
legislation, labor-management relations and general legal services, hearing
examiners, decision writing, and research, analysis, and reference.
The legal functions of the Department relating to pending and proposed
legislation are discharged through attorneys in the Legislation Division.
The activities of the staff in the preparation of legislative proposals,
testimony, analyses, explanatory statements, and other legislative materials
for the Secretary and other Department officials assumed special importance
during the second session of the 87th Congress and the first session of the
88th Congress. It culminated in the enactment of several “top priority”
items in the Administration’s legislative program.
The Department has direct responsibility for administering one of the
proposal s which was enacted into law—the EquaI Pay Act, Public Law 88-3 8.
It also assumes vital areas of responsibility under the Trade Expansion
Act, Public Law 87-794, and the Public Works Acceleration Act, Public
Law 87-658. Under the Public Works Acceleration Act, the Secretary of
Labor is responsible for determining legally what areas are eligible, on
the basis of employment studies, to receive Federal assistance on public
works projects. The Trade Expansion Act will enable this country to
increase its exports and provide adjustment assistance for workers adversely
affected by increased imports.
An important Administration measure which was the subject of congressional
hearings during the 1963 fiscal year is the Youth Employment
Act. The purpose of this proposal is to provide healthful employment
for youths now unemployed and at the same time provide through State
and local governments useful work experience and training opportunities
for unemployed young men and women so that their employability may
be increased.
The Solicitor’s Office prepared testimony for the Secretary’s use during
congressional hearings on the President’s tax cut and tax reform program.
At other hearings on the proposed extension of the Mexican labor program,
the Department recommended certain safeguards to provide benefits to
domestic migrant workers similar to those accorded Mexican nationals.
The Solicitor testified at hearings on proposed amendments to the Davis-
Bacon Act which would include fringe benefits in the determination of
prevailing wages for laborers and mechanics on certain Government contracts.
The legislative staff provided assistance to congressional committees,
Members of Congress, and officials of the Department in connection
with these and many other legislative items.
The preparation of reports to congressional committees and the Bureau
of the Budget expressing the Department’s views on proposed and pending
legislation continued at a high level of activity during the 1963 fiscal
year. Many of the reports involved extensive legal analysis and policy
coordination with officials of the Department and other Government
agencies. In addition, the staff maintained a continuing legislative
reference service consisting of a daily digest of the Congressional Record,
the preparation of other legislative reference materials, and the answering
32
of daily inquiries concerning the status and other aspects of legislative
items.
The labor-management relations and general legal services responsibilities
include a broad range of complex and controversial statutes and programs
which are not administered by the Department, but on which the Secretary
of Labor, as the top labor official in the Government, offers advice and
counsel to the President and the Congress. Prominent among these statutes
and programs are the Taft-Hartley Act and the Railway Labor Act. The
legal issues which arise in this area, in addition to a large body of specialized
labor relations laws, involve the broadest range of subjects, since they are
determined by the problems which may face the Secretary of Labor at any
given time.
An important function of the attorneys engaged in this activity is to
provide advisory legal services to the Office of the Secretary and other
offices and bureaus of the Department not otherwise serviced. Indicating
the high level of activity of this function and the legislative function, a
total of 72.1 analyses, memoranda, and orders, 777 letters for the Secretary’s
signature, and 1,817 letters for the signature of the Solicitor were prepared
during the fiscal year. In addition, the staff performed other legal functions,
such as reviewing contracts entered into by the Department.
The Division drafted standards of conduct for employee organizations
and a code of fair labor practices, which implements Executive Order 10988
concerning employee-management relations in the Federal service. It
also drafted rules for the nomination of arbitrators under section n of the
order. The Division continues to furnish legal advice on the application
of the Executive order and its implementing documents.
The hearing examiners held 55 hearings during the fiscal year pursuant to
various laws administered by the Department of Labor. Most of these
hearings, 44, involved alleged violations of the Walsh-Healey Public
Contracts Act; 36 decisions were rendered in these cases. Three hearings
involved the determination of prevailing minimum wages under the Public
Contracts Act. Eight other hearings were conducted pursuant to the
Davis-Bacon Act, the Fair Labor Standards Act, and other labor standards
statutes.
In the area of decision writing, the staff provides legal assistance to the
Employees’ Compensation Appeals Board in the adjudication of cases
under the Federal Employees’ Compensation Act which have been appealed
from the initial administrative decision of the Bureau of Employees’ Compensation.
They prepare drafts of the opinions expressing Board decisions,
furnish legal advice to the Board, and perform research assignments of a
special nature on request of the Appeals Board or the Solicitor. During
the year, a total of 306 cases were received for the preparation of opinions
and 2.70 decisions were written. The average time between receipt of a
case from the Appeals Board and the preparation of a decision was reduced
to slightly in excess of 1 month, as compared with an average of approximately
3 months which prevailed a few years ago.
33
Research, analysis, and reference is a new area of activity established
during the recent reorganization of the Solicitor’s Office. Its function is
to review the past work of the Office of the Solicitor, and to prepare the
appropriate analytical and reference systems and necessary research materials
so that attorneys in the Office will have only to research the system instead
of the individual opinions, interpretations, determinations, and decisions.
The purpose of this program is to conserve the attorney’s time without
sacrificing accuracy, substance, thoroughness, and completeness. During
fiscal year 1963, the staff was engaged in preparing a “Legislative History
of the Fair Labor Standards Amendments of 1961,” a digest of key opinions
rendered in the past by the Solicitor on the Davis-Bacon and related acts,
digests of current Solicitor’s opinions in all areas, and reports and miscellaneous
papers.
DIVISION OF LABOR-MANAGEMENT LAWS
The principal work of this Division consists of rendering advice to the
Bureau of Labor-Management Reports1 in connection with responsibilities
of the Department under the Labor-Management Reporting and Disclosure
Act of 1959, supervising the Department’s legal lunctions under that act,
and providing legal services to the Office of Welfare and Pension Plans1
with respect to the Welfare and Pension Plans Disclosure Act.
During the year, 160 cases were referred to the Solicitot by the Bureau of
Labor-Management Reports for possible legal action under the LMRDA.
Civil action was instituted in the Federal district courts in 2.5 cases after
analysis and consideration. Sixty-seven cases were transmitted to the
Department of Justice with recommendation for criminal prosecution.
The Division, through which all of the Department’s legal enforcement
activities under the act are performed and coordinated, participated during
the year in 10 defensive actions brought against the Secretary in Federal
and State courts. The Division also participated in one U.S. Board of
Parole hearing where the petition for a certificate of exemption from the
prohibitory provisions of section 504 of the LMRDA was denied. Seventyfive
private actions involving the LMRDA were also reviewed during the
year to determine the effect, if any, such actions would have on the
Secretary’s responsibilities under the act.
Of the 2.5 civil actions instituted in the Federal courts, 15 involved
violations of the election provisions of the act, 5 were instituted to enforce
compliance with administrative subpenas issued by the Commissioner of
Labor-Management Reports, 4 were instituted to compel the filing of
required reports, and 1 civil action, the first filed by the Secretary under the
trusteeship provisions of the act, was instituted to terminate an improper
> On August 21,1963, the functions of the Bureau of Labor-Management Reports and of the Office of Welfare
and Pension Plans were transferred to the Office of Labor-Management and Welfare-Pension Reports in
the newly established Labor-Management Services Administration. The Division of Labor-Management
Laws will continue to render legal services relating to these programs.
34
trusteeship. Twelve election cases, 9 of which were instituted prior to
the start of this fiscal year, were favorably concluded with the entry of
orders directing rerun elections under the supervision of the Secretary.
Several of these cases resulted in important court decisions construing
the provisions of the act relating to union officer elections. In one case,
Wirtz v. Amarillo General Drivers, Local ^77, 2.14 F. Supp. 74 (N-D. Texas,
1963), the district court held that section 401(e) of the act protected union
members from being declared ineligible for union office because of lack of
good standing, due to nonpayment of dues, where the delay in payment of
their dues under a checkoff arrangement was caused by the failure of the
employer to make timely deductions; and that a requirement in the union
constitution that a member could not be a candidate for office without
advance dues payment every month for a x-year period was so rigid as to
be unreasonable. In Wirtz v. District Council No. 21, Brotherhood of Painters,
zii F. Supp. X53 (E.D. Pa., 196X), it was held that a labor organization was
not entitled to a jury trial in an action brought under the election provisions
of the act. The Federal district court in Puerto Rico, in directing that a
challenged election be rerun under the supervision of the Secretary, held
that these provisions apply to labor organizations, union officers and
representatives, and employers engaged in agricultural operations which
affect interstate commerce. See Wirtz v. Union de Prabajadores Industria
Azucarera Fase Agricola, Guayama, Inc., Local 804, Affiliated with the Packinghouse
Workers’ Syndicate, District No. 9 of Puerto Pico, AFL-CIO, 52.LRRMXX13,
46 L.C. ^17,994 (D.P.R., 196X).
Of the five cases in which court orders were entered directing compliance
with administrative subpenas issued by the Commissioner, three were filed
during this fiscal year. In each instance the position of the Department
regarding the scope of its authority to investigate and to issue subpenas
in aid thereof was upheld. Of major significance is the decision in Wirtz v.
Local 191, International Brotherhood of Teamsters, (D. Conn., 1963). The
Federal district court, in directing the union to comply with the subpena,
held that the Secretary’s broad investigatory authority granted by section
601 includes the right to investigate union elections for possible violations
and that this right is not limited by the provisions of section 40X; i.e., the
Secretary in conducting an investigation or seeking to enforce a subpena is
not required to show first that a complaint has been filed with him pursuant
to section qox(a). This decision was subsequently affirmed by the Court
of Appeals for the Second Circuit.
Other decisions construing the Secretary’s authority to conduct investigations
have held that the Secretary’s right to inspect union records includes
the right to retain the original documents for a reasonable time and to make
copies. See Wirtz v. Local 875, International Brotherhood of Teamsters, xi6
F. Supp. 798 (E.D.N.Y., 1963) and Wirtz v. Flod Carriers' and Common
Laborers’ Union, Local 502, 5XLRRMX133, 46 L.C. ^[17,851 (D.N.J., 196X).
It has also been decided that the Secretary is authorized by section 601 to
35
investigate and to exercise his subpena power to determine whether a
particular labor organization, officer, or employer is subject to the act’s
requirements. See Wirt^ v. Electricians and Associates, Inc., 51 LRRM 2.675,
46 L.C. 1[i7,937 CD. Minn.,
In addition to the 15 civil actions filed under the LMRDA, 1 civil actions,
the first cases to be filed under the WPPDA, were prepared in this Division.
These actions seek to compel the administrators of certain welfare and
pension plans subject to this act to comply with its reporting requirements.
During the year, extensive legal assistance was provided the Bureau of
Labor-Management Reports and the Office of Welfare and Pension Plans 1
in the preparation of regulations, reporting forms and various technical
assistance aids, and other publications. Under the Labor-Management
Reporting and Disclosure Act, this included regulations relating to removal
of officers (sections 401 (h) and (i)) and rerun of elections (section 401(b)),
and union officer and employees reporting forms required by section 101.
Regulations issued under the Welfare and Pension Plans Disclosure Act
include: (1) a regulation relating to welfare and pension plans with less
than 100 participants (sections 5 and 7); (1) a regulation covering the basic
bonding requirements imposed by section 13 of the act; (3) a regulation
with respect to the granting of exemptions from the bonding requirements
of the act (section 13(e)); and (4) a regulation covering the meaning of
section 13(c).
The Division also compiled and prepared for publication the “Legislative
History of the WPPDA of 1958, as Amended by Public Law 87-42.0 of 1961.’ ’
This volume was published in January 1963. A comprehensive legislative
history relating to the first six titles of the LMRDA was prepared for
publication. It is anticipated that this volume will also be available to
the public in the near future.
During fiscal year 1963, approximately 1,650 written opinions were
issued involving the LMRDA and 1,500 under the WPPDA. These opinions
were given to the operating bureaus and to the public in connection
with specific problems of interpretation arising under these laws. In
addition, the Division gave approximately 2.5,000 oral opinions (with
regard to the two laws within its responsibility) in response to telephone
calls, informal conferences with bureau personnel, and requests from the
public in connection with the administration and enforcement of the
programs entrusted to the Division.
INTERNATIONAL LABOR AFFAIRS
During fiscal 1963, the Office of the Solicitor expanded its services to
the Department in the area of international activities. This work was
primarily the responsibility of a newly created office of Special Assistant
1 See footnote 1 on page 34.
36
for International Labor Affairs. The work of the office may be divided
into four categories.
First, the office provided services in connection with the International
Labor Organization. These included preparation of annual reports, position
papers, memoranda of law concerning ratification of convention, and
the like.
Second, the office was engaged in providing legal advice in international
economic problems. These were, first, activities under the Trade Expansion
Act of 1962., both in connection with proposed tariff negotiations
and in the promulgation of regulations for the administration of the worker
assistance program. Second, they were in connection with the International
Cotton Textile Agreement and its administration by the Department
of Labor as one of five interested agencies. The former, insofar as
the activities fell within the jurisdiction of the Department of Labor’s
Committee on Foreign Economic Policy, represented legal services to that
committee. The office also advised the Department’s representatives on
the Trade Staff Committee, Trade Executive Committee, and Trade Expansion
Act Advisory Committee.
Third, the office assisted in the negotiation of a new contract with the
Agency for International Development pursuant to which the Department
of Labor will perform increased services in foreign assistance programs of
the United States.
Finally, the office provided legal services in connection with a labor
dispute on the Great Lakes involving both Canadian and United States
unions and employers which has seriously disrupted shipping on the Great
Lakes and irritated relations between the United States and Canada.
37

MANPOWER ADMINISTRATION

MANPOWER ADMINISTRATION
The American labor force—its size, composition, and potential—has
been a major interest of the U.S. Department of Labor since the agency’s
establishment in 1913. Long the principal governmental source of statistical
information in this field, the Department has concerned itself also with
the development of work skills, the employment security of millions of
our citizens, the matching of jobs and people, and a host of other considerations
equally important to the Nation’s economic well-being and
growth.
Now, a new dimension has been added to the Department’s role in this
vital area of economic life. Our modern technological age, along with a
dramatically expanding population, has produced an entire restructuring
of the Nation’s manpower resources. Involved are a labor force which in
many respects is ill-prepared to meet the forces of economic change now
sweeping across our industrial society, and an unemployment problem reflected
in the idleness of 5 to 6 percent of the Nation’s work force throughout
the period of the late 1950’s and early 1960’s.
All that is involved was succinctly described by President Kennedy as
“the number one domestic concern of the United States in the 1960’s.” In
the resolution of that concern, the Labor Department is charged with a
high degree of responsibility. It is attempting to meet that responsibility
both through an intensification of some of its traditional services and the
initiation and development of new programs assigned to it by the Congress.
Two such programs—the Area Redevelopment Act of 1961 and the
Manpower Development and Training Act of 1962.—have led to the establishment
of a new arm of the Department of Labor which seeks to coordinate
and expand all departmental efforts in the broad field of manpower
utilization.
In February 1963, all departmental functions relating to employment,
unemployment, and the effective use of the Nation’s manpower in general
were brought together under a new structure called the Manpower Administration.
The Administration is built around a framework of three
existing Department agencies: the Bureau of Employment Security, the
Bureau of Apprenticeship and Training, and the Office of Manpower,
Automation, and Training.
41
Under the direction of a Manpower Administrator, activities in the
following areas of responsibility fall within the province of the Administration
:
• The Manpower Development and Training Act
• Department of Labor functions under the Area Redevelopment Act
• Worker adjustment assistance provisions of the Trade Expansion Act
• Assigned functions under the Public Works Acceleration Act.
• Migratory farm labor
• The United States Employment Service
• The unemployment insurance system
• Support and development of apprenticeship programs
• Civil defense and emergency planning functions of the Department
of Labor
In addition to these specific responsibilities, the Manpower Administration
oversees and coordinates all manpower-related activities of the
Department as a whole.
The respective reports of the three basic agencies in the Manpower
Administration follow.
42
BUREAU OF APPRENTICESHIP AND TRAINING

BUREAU OF APPRENTICESHIP AND TRAINING
During fiscal year 1963, the Bureau of Apprenticeship and Training
carried out its responsibility of working with labor and management in
establishing, improving, and expanding apprenticeship and other on-thejob
training programs by industry. This was accomplished through 12.
regional offices with representatives in each of the 50 States.
A national coordinator was added to the BAT staff to work in the field
of nondiscrimination in the employment of minorities as apprentices. The
new staff member directed the efforts of the four industrial training advisers
stationed in Chicago, San Francisco, New York, and Atlanta, and also
served as industrial training adviser for the District of Columbia.
An apprenticeship information center was opened in the District of
Columbia as a pilot project for similar centers in the larger industrial and
manufacturing cities. The centers are the joint function of the Bureau of
Apprenticeship and Training and the Bureau of Employment Security.
The Bureau of Apprenticeship and Training and local employment offices
cooperate with local organizations in the establishment and operation
of the centers, which are designed to inform and counsel youth on apprenticeship
opportunities and to refer interested persons to employers and
joint labor-management apprenticeship committees. Open to all persons
interested in apprenticeship, the centers provide apprenticeship information
suitable for youths, schools, guidance departments, minority groups,
local unions, employer associations, and the general public. They also
provide individual and group counseling for apprentice applicants, with
emphasis on locating job openings in apprenticeable trades.
The Bureau worked closely with the Advisory Committee on Equal
Opportunity in Apprenticeship appointed by the Secretary of Labor. Composed
of outstanding representatives of labor, management, education,
minority groups, and the general public, the group is chaired by the Under
Secretary of Labor in his capacity as Manpower Administrator of the Department.
The committee has the responsibility of advising the Department
on the development and promotion of more effective programs and
policies in the broad area of equal opportunity in both apprenticeable and
other occupations requiring high-level skills.
The Bureau of Apprenticeship and Training has been assigned the responsibility
for on-the-job training under the Manpower Development
and Training Act of 1962.. Agreements have been made with employers,
labor unions, associations, and public agencies to conduct training programs
which use their facilities to train the unemployed, the underemployed,
and youth in need of skills. The first on-the-job training contract under
the act was executed early in March 1963. By June 30, 42. such contracts
711-471—64- 45
providing for the training of 1,6x7 persons in 117 occupations had been
approved and 181 trainees had completed training in 6 occupations. Training
costs for the 117 projects amounted to about $717,000 and wages paid
to trainees by employers approximated $1,468,000. Contracts were executed
with 30 employers, 1 employer association, x joint apprenticeship
and training committees, and 4 unions.
The Federal Committee on Apprenticeship, which serves in an advisory
capacity to the Secretary of Labor, took an active part in the observance
of the X5th anniversary of the national apprenticeship program in fiscal
year 1963. At an all-day celebration in Washington, certificates of appreciation
were presented to many individuals and organizations that had made
a major contribution to apprenticeship over the X5 years. Displays featuring
blowups of the national apprenticeship program commemorative
postage stamp and the Department of Labor seal were arranged in department
stores in n major cities. The stamp was issued August 31, 196X,
in Washington, and first-day sales amounted to 1,147,554. The number
of stamps printed totaled ixo million.
During fiscal year 1963, the Federal Committee assumed a more active
interest in the program of the Bureau. It held three regular sessions and
arranged for task forces from its membership to concern themselves with
specified areas of endeavor. Two of these task forces, one on defense
contracts and the other concerning on-the-job training under the Manpower
Development and Training Act, held meetings. The Federal Committee
also recommended that a safety provision clause be included in all apprenticeship
standards.
The Bureau maintained close working relationships with State apprenticeship
agencies to strengthen mutual cooperation. The Bureau provided
a clearinghouse service to State agencies to disseminate informational
material regarding both apprenticeship and training. A joint meeting of
the Bureau and State apprenticeship agencies was held in January 1963,
and it was agreed that a State-Federal Liaison Committee be formed to
coordinate activity. The first meeting ot the committee was held May X3,
1963.
The joint Bureau of Apprenticeship and Training and American Vocational
Association Committee held a meeting in Washington early in
January 1963. Groundwork was laid for the establishment of similar
joint committees on the local level.
In the field of manpower mobilization, the construction task force project
advanced from the pilot stage to the establishment of 18 additional project
site locations throughout the country. These task forces are on call by the
local Civil Defense in event of a national or natural disaster. At Waco,
Tex., and Pueblo, Colo., the construction task force was coordinated with
the Bureau of Employment Security’s preassigned team plan project that
deals primarily with resource areas such as feeding and shelter programs.
The six project areas in Florida were expanded to include additional construction
trades.
46
There were excellent results in establishing working relationships between
parole officers and local joint apprenticeship committees in California,
Ohio, and Washington. A working relationship was also developed
with the Bureau of Prisons, and a program was worked out to encourage
vocational training staffs in correctional institutions to adopt the same
criteria in their training programs as those in industrial apprenticeship
programs.
A total of 87 participants from x6 foreign countries were given an opportunity
to observe apprenticeship and other training methods in 55 different
industrial fields. Sixty-seven participants completed their training programs
and returned to their home countries. A considerable number of
these reported promotions or greater job responsibilities as a result of their
training.
During the year, the Governor of the Virgin Islands requested the Bureau
to provide assistance to his government in establishing an apprenticeship
law, creating an apprenticeship council, and inaugurating several apprenticeship
programs. A Bureau representative was assigned to this project
and all objectives were completed.
The Bureau cooperated with the Bureau of International Labor Affairs
and the Department of Commerce in recruiting qualified personnel to set up
and man exhibits at trade fairs around the world. It sent technical personnel
to the trade fair at Poznan, Poland, and to the Cyprus Trade Fair.
The Chief of the Division of Review and Registration went to Caracas,
Venezuela, and assisted the National Institute of Cooperative Education in
establishing apprenticeship and training activities in that country. The
Administrator of the Bureau of Apprenticeship and Training went to Geneva,
Switzerland, where he participated in the Tripartite Technical Meeting for
Printing and Allied Trades. A BAT staff member participated in the 7th
session of the ILO Textiles Committee in Geneva.
The Bureau prepared a nationwide survey of training in industry which
will be published in fiscal year 1964. Some 8,000 schedules were coded
and a preliminary report released. The report showed that approximately
700,000 establishments employed 36 million workers—1.7 million of whom
were enrolled in one or more formal training programs.
A study of training and joint apprenticeship committee activity in the
printing industry was completed and published. Entitled Compositor,
Composing Room Machinist and Mailer Joint Apprenticeship Committee
Project,” the study provides a summary and analysis of activities of joint
apprenticeship committees and the extent of new process training of journeymen
to update their skills.
Articles were researched, written, and placed in a number of national
publications, including Technology, the monthly review of training and
education for industry published by the London, England, Times, and the
Washington Report of the United States Chamber of Commerce.
Two new Bureau publications were issued. These were ‘ ‘ First 10 Winners
47
of the Patterson Memorial Award” and “Observance of the 15th
Anniversary of the National Apprenticeship Program.”
In addition, the Bureau provided 14 national apprenticeship and training
standards, one of which (on draftsmen) was revised; issued 7 reprints
from international and national publications; and displayed Bureau exhibits
on 19 occasions at State fairs and apprenticeship and training conferences
and conventions. A total of 306,300 Bureau publications were distributed
to associations, employers, unions, individuals, educational institutions,
public libraries, State and Federal agencies, and foreign representatives.
This was an increase of 45,300 over fiscal year 1961.
Promotional activities of the field staff included servicing 189,000
establishments, visiting 135,000 local industrial establishments or labor
organizations, and making 8,556 public appearances, which included
speeches, film showings, radio and television presentations, and related
methods of creating public awareness of the need for the training of workers.
There were approximately 2.00 showings of the Bureau’s film “Skills for
Progress.”
The work of the field staff was reflected in the establishment of 2.,307
new programs during the year, 1,189 which were apprenticeship programs
and 1,118, journeyman and other training programs. In addition,
the field staff made 1,572. visits to obtain training opportunities for
international participation.
The Bureau encouraged industry to employ apprenticeship and training
coordinators. During fiscal 1963, there were 44 national apprenticeship
and training coordinators and 171 local coordinators employed.
The Bureau launched a series of meetings to acquaint national apprenticeship
and training coordinators and directors, international union officials,
and representatives of national employer associations with the on-the-job
training provisions of the Manpower Development and Training Act.
The meetings were designed to focus discussion on the coordination of
efforts by industry and government in increasing training opportunities
for the unemployed, the underemployed, and those whose skills had become
obsolete because of technological change.
A total of 3,117 apprenticeship and training programs were examined.
Registration actions numbered 1,678, including new programs, changes in
programs, and cancellations. A total of 7,400 certificates were issued,
including certificates of completion of apprenticeship and certificates of
meritorious service honoring individuals or groups.
48
BUREAU OF EMPLOYMENT SECURITY

Contents
Page
Introduction........................................................................................... 53
Responsibilities................................................................................ 53
Reorganization................................................................................. 54
Program emphases........................................................................... 54
Highlights........................................................................................ 5 &
United States Employment Service..................................................... 57
Placement and related services....................................................... 5 8
Provision of manpower services..................................................... 66
Employment service tools................................................. ............. 71
Farm labor services............................................................................... 7&
Domestic farm labor........................................................................ 77
Foreign farm labor........................................................................... So
Unemployment insurance..................................................................... S3
State benefit financing..................................................................... S5
State legislation............................................................................... S6
Federal legislation........................................................................... S9
Federal programs............................................................................. S9
Research and information............................................................... 9°
Administration................................................................................. 9Z
Appendix tables..................................................................................... 94
1. Selected employment service activities, U.S. totals for fiscal
years 1956-63, by State for fiscal year 1963........................ 94
1. Significant provisions in State unemployment insurance laws,
June 30, 1963........................................................................... 95
3. Claims, beneficiaries, amount, and duration of benefits under
State programs, U.S. totals for fiscal years 1953-63, by State
for fiscal year 1963...................................................................... 9^
4. Subject employers, covered employment, and selected unemployment
insurance financial data under State programs,
U.S. totals for fiscal years 1953-63, by State for fiscal year
1963............................................................................................... 100
5. Selected data on unemployment compensation for Federal
employees, U.S. totals for January-June 1955 and fiscal years
1956-63, by State for fiscal year 1963.................................. IO2-
6. Selected data on unemployment compensation for ex-servicemen,
U.S. totals for October 1958-June 1959 and fiscal years
1960-63, by State for fiscal year 1963.................................. 103
7. Disqualifications under State programs, by issue, U.S. totals
for fiscal years 1953-63, by State for fiscal year 1963............. 104
51

INTRODUCTION
Responsibilities
The Bureau of Employment Security is concerned with two major Federal-
State programs—employment service and unemployment insurance. The
first is concerned primarily with finding employment for workers that
will utilize their highest skills and referring qualified applicants to employers
with job openings; the second, with providing eligible workers
partial replacement of wage loss caused by involuntary unemployment.
With the passage of the Area Redevelopment Act and the Manpower
Development and Training Act, the Bureau’s United States Employment
Service was given added responsibilities with respect to assessing manpower
needs and requirements, promoting manpower development and
training, and assisting community groups in area redevelopment efforts.
Both acts utilize the unemployment insurance machinery for disbursement
of funds to workers being trained for work. Under the Trade Expansion
Act, the Bureau was given not only training provisions but, for the first
time, responsibility concerning relocation allowances for workers and
readjustment allowances for workers who are affected adversely by actions
taken under the act.
The Bureau’s overall responsibilities with respect to employment service
and unemployment insurance activities are to study and recommend any
changes necessary in the programs to meet current or anticipated needs
of wage earners and employers; to administer employment security programs
as required by Federal law or other delegated authority; and to promote
understanding and acceptance of the employment security system.
As the Federal partner in the employment security system (consisting of
the Bureau and affiliated State employment security agencies with their
1,900 local public employment offices throughout the Nation), the Bureau
is responsible for insuring proper and efficient administration by the State
agencies of employment security programs; insuring conformity of State
laws with requirements of Federal laws and regulations, and compliance
of State administration with State laws which meet Federal requirements;
encouraging States to improve State legislation and administration; and
providing continuing technical assistance and interchange of experience
and information.
Also, the Bureau guides and assists State agencies in cairying out employment
service and unemployment insurance activities and their responsibilities
under recent legislation; provides labor, management, government,
and the public with labor market and other information related to the
operation of the employment security system; provides needed supplemental
53
foreign farmworkers and insures that their employment does not affect
adversely domestic workers similarly employed; develops and maintains
capability for meeting national emergency or other disaster needs for
civilian manpower; and assists other nations to improve methods for
achieving their employment security objectives.
The Bureau has responsibility for the system of administrative financing
of employment security programs and activities, including fiscal accountability.
Administrative costs for the operation of the programs are met
from congressional appropriations, with 100 percent “grants” for program
administration apportioned by the Secretary of Labor to cooperating State
agencies.
In addition, the Bureau administers Federal unemployment compensation
programs covering separated employees of the Federal Government and
ex-servicemen; operates a system for clearing labor between the several
States; maintains a public employment service for the District of Columbia;
and performs activities related to the importation of foreign workers.
Since the effectiveness of Bureau activities is measured best in the services
provided to workers and employers through local offices of State
employment security agencies, this report is not limited to the Bureau but
includes both Federal and State efforts with respect to employment security
programs.
Reorganization
On February 19, 1963, the Bureau of Employment Security, together
with the Office of Manpower, Automation, and Training and the Bureau
of Apprenticeship and Training, became a part of a new Manpower Administration
in the Department of Labor. The Administrator of the Bureau
was charged with responsibility in the field of manpower operations.
The establishment of the new Manpower Administration by the Secretary
of Labor reflected increased national concern with problems of unemployment
and supported Bureau action, undertaken in fiscal year 1962., to
strengthen its own structure and the capability of State employment
security agencies to meet new manpower responsibilities.
Program Emphases
Program emphases of a major area are included in the appropriate sections
of this report under employment service, farm labor, or unemployment
insurance. Those activities described below affect all phases of the employment
security program.
As a result of additional funds made available by the Congress for the
preceding year, the Federal-State employment security system began fiscal
1963 with more staff resources in the public employment offices than were
available in the preceding 10 years. To help State agencies train their new
staff members and increase the competence of their other employees, the
Bureau made staff development and utilization a subject of special emphasis
in fiscal year 1963.
54
Through “ train-the-trainer” institutes, the Bureau guided State training
supervisors in more effective training of operating supervisors and program
technicians. It also encouraged greater use of out-service training by
which university or other special college level courses, related to the
technical field of individual participants, are selected and approved by the
agencies and the Bureau as supplementing in-service training. Four conferences
on executive leadership and management were sponsored by the
Bureau in cooperation with four leading universities (University of
California, Cornell, Michigan State, and University of Washington) for
training State agency administrators and key members of their staffs and
ii Bureau staff members. Discussions included problems affecting the
employment security program. Course content of these conferences related
general principles of leadership and management to employment security
operations.
In the organization and administration of personnel management programs,
direct assistance was given to several States in revising job classification
and compensation plans, and guide materials were developed for
State agency use in installing effective plans for staffing variable workloads
typical of the unemployment insurance program. Model position descriptions
were distributed to States for use in upgrading minimum qualification
standards.
Other assistance in the area of management included preliminary work
on development of a revised budgeting system; two important revisions in
fiscal standards to require State agency administrators to exercise greater
responsibility with respect to goods, facilities, and services supplied by
other departments and to establish more specific requirements for agencies
to meet in negotiating space for State or local offices; establishment of a
management techniques-and-methods exchange; and procedures for assembling
materials useful in analysis of State requirements for equipment
replacement and development of ground rules for such replacement.
Emphasis was placed also on removing discriminatory barriers in the
hiring of staff, A revision was issued in the standards for a merit system
of personnel administration requiring that each State employment security
agency have specific prohibitions in its law or rules against racial discrimination
in employment and that the law or rules provide for appeals by
persons who allege discriminatory treatment.
As a result of continued effort, segregated services were eliminated in
19 of 2.6 local public employment offices which had been segregated at the
beginning of fiscal year 1963. Geographically separate offices—maintained
for serving nonwhite applicants—were closed, and offices having separate
divisions within the same building were reorganized so that all applicants
could be served without regard to race or color. At the end of the fiscal
year, State agencies made firm commitments with respect to the remaining
seven offices—to integrate the four divisional offices by July 15, 1963, and
to consolidate operations of the three geographic offices with other
operations on a nonsegregated basis by November 1963.
55
State and local employment offices were directed to comply fully with
established policies of the United States Employment Service which prohibit
any form of discrimination based on race, creed, color, or national origin
in services provided to applicants, claimants, or others.
In each regional office of the Bureau, a staff member was designated to
work on minority group employment problems, and State agencies were
urged to appoint minority group representatives.
An employment-oriented pamphlet, “America Is for Everybody,” was
published by the Bureau to commemorate the rooth anniversary of the
Emancipation Proclamation.
The Federal Advisory Council, representing employers, employees, and
the public, was reconstituted by the Secretary of Labor in cooperation with
the Bureau to consider manpower needs of the Nation and to recommend
the appropriate role of the employment security system in meeting those
needs.
To broaden its perspective, the Bureau studied manpower trends,
problems, programs, and policies of a number of European countries.
The activities of the public employment offices were subjected to attack
in fiscal year 1963 by means of letters written to Members of Congress by
officials of many fee-charging employment agencies.
Highlights
Public employment offices made some 6.6 million nonagricultural placements
in fiscal year 1963—the highest placement level since World War II,
and z percent above the fiscal 196Z level, also a record year. Farm placements,
however, at 7.9 million, reflected rapid advances in farm mechanization
and were down slightly more than a million from the 9.0 million for
fiscal 196Z.
Permanent improvements in the unemployment insurance program were
proposed by the Administration to fill gaps in protection afforded the
unemployed and to make the program more responsive to changes in the
economy.
More than 9,000 were enrolled for training under the Area Redevelopment
Act in fiscal 1963 and more than 30,000 under the Manpower
Development and Training Act. By yearend, about 70 percent of the
graduates under both programs had obtained employment, mostly in
training-related occupations.
Segregated services were eliminated in 19 of z6 local offices which were
still segregated at the beginning of the fiscal year. Firm commitments
were made for operating the remaining seven offices on a nonsegregated
basis by November 1963.
Interarea recruitment played a more crucial role in the labor market as
demand increased for highly skilled and professional workers. By means
of the professional office network, applicants’ qualifications and employer
job orders are circulated speedily among the 114 offices of the network,
56
and those offices draw, as necessary, on resources of 1,900 local offices
throughout the Nation.
Public employment offices increased their counseling and testing activities
to meet responsibilities under the Area Redevelopment Act and the Manpower
Development and Training Act, needs of rising numbers of youth
and women in the labor force, and problems of older workers displaced
from long-time employment as a result of automation and technological
change.
Increased effort was made to use domestic farmworkers more effectively
and to reduce need for supplementary foreign workers.
Amendments to unemployment insurance laws of 10 States increased
maximum weekly benefit amounts, but their effect was offset partially by
a trend toward more difficult qualifying requirements in terms of higher
required wages or more weeks of work and more stringent disqualifications.
Public employment services tackled the school dropout problem on
many fronts—by extending and improving counseling and placement
services, giving priority to youth in training programs under the Manpower
Development and Training Act, making wide use of the employmentoriented
film “When I’m Old Enough, Goodbye!” and participating with
community groups concerned with the problem.
In fiscal year 1963, one out of three veterans was over 45 years of age.
However, while comprising only 2.3.4 percent of male applicants in local
employment offices, veterans accounted for 30.5 percent of all male nonfarm
placements in fiscal year 1963.
Experiments with machine processes for unemployment insurance data
were designed to simplify and improve procedures and to provide more
time for effective applicant interviewing and determination of benefit
eligibility; for employment service, to expedite—by means of a telecommunications
network—the interchange of labor supply and demand information
among local employment offices.
State unemployment insurance reserves increased for the second successive
year. On June 30, 1963, they were 6.9 percent above the year-earlier level.
More adequate State laws relating to unemployment insurance financing
were enacted in 18 States.
UNITED STATES EMPLOYMENT SERVICE
The nationwide public employment service system, created by the
Wagner-Peyser Act of 1933, celebrated its 30th anniversary in fiscal year
1963. The United States Employment Service and affiliated State employment
services, with their network of about 1,900 local employment offices,
have facilities and resources which reach into all labor markets of the
Nation. The system has been responsible for 3^5 million farm and nonfarm
job placements in the 30 years of its existence.
Matching men and jobs continues to be the primary mission of the
employment service, but its responsibilities have been broadened. During
57
fiscal year 1963, program emphasis included not only improvement of basic
placement functions but reorganization of metropolitan area local offices;
job market services to youth; easing the impact of automation and technological
change; manpower training under the Area Redevelopment Act and
the Manpower Development and Training Act; labor market operations
research; and assistance to State employment services in improving their
administration and management functions.
Fiscal year 1963 was the first full year of operation of the reconstituted
United States Employment Service as an organizational entity. It continued
to work with State employment services on the actual physical
separation of employment service and unemployment insurance functions
in local offices in major metropolitan areas and on the reorganization of
these offices on an occupational-industrial basis. Improved services resulting
from these changes were reflected in placements which increased by
5.5 percent in the 55 largest metropolitan areas over the previous fiscal year
as compared with a 1.9 percent increase for all local offices. Placements
of professional workers rose 12. percent over the year.
Under the Manpower Development and Training Act of 1962., the public
employment service system was given primary responsibility for identifying
training needs, supplying qualified trainees, and placing graduate trainees.
In fiscal 1963, significant progress was made in initiating MDTA training
projects.
The area labor market information program was expanded to provide
data needed by the Secretary of Labor in designating areas of substantial
unemployment—a responsibility placed on him by the Public Works
Acceleration Act of 1962..
In the early 1960’s, young people were entering the labor market at the
rate of 2. million a year and were experiencing ever increasing difficulty in
finding jobs. The seasonally adjusted unemployment rate for youth under
20 years of age was 16.0 percent in June 1963 as compared with 11.4 percent
in June 1961. To deal with this problem, local employment offices stepped
up their counseling, testing, job development, and placement services for
young people and worked with school officials to strengthen the cooperative
ES-school program.
Progress in major program areas is described in the following sections.
Placement and Related Services
Placements
In fiscal year 1963, public employment offices made some 6.6 million
nonagricultural placements, the highest fiscal-year placement level since
World War II. Nonfarm placements were 1.9 percent above the fiscal
1962. level, also a record year. About 3.3 million nonfarm placements
were made in the 55 major metropolitan areas, 5.5 percent more than in
the preceding year. Among occupational groups, the professional and
managerial category, with 247,500 placements, recorded the sharpest
increase—11 percent. Small rises occurred in the clerical-sales, unskilled,
58
and service groups; a minor decline, in the combined skilled and semiskilled
category. Among industry divisions, services, with about 1,557,000
placements, showed the greatest gain—nearly 6 percent. Placements in
trade, at 1,560,000, represented a 3.7 percent increase over the preceding
fiscal year, while the number of construction placements, at 455,000,
remained virtually unchanged. Other industry divisions (manufacturing,
public utilities, and government) recorded small losses.
Nonfarm placements in the United States by industry and occupation, fiscal years
1962-63
• •
1963 1962
Percent
change
1962-63
Total placements 1_________________________________ 6,632,300 6, 506, 000 +1.9
By industry:
Construction.__ ____________________________________ 454, 900 454,100 +0.2
Manufacturing______________________________________ 1,438,400 1,487, 900 -3.3
Public utilities---------------------------------------------------------- 227, 200 233,800 -2.8
Trade---------------------------------------------------------------------- 1, 560,300 1, 504, 900 +3.7
Services------------------------------------------------------------------- 2, 557,300 2,416,100 +5.8
Government----------- ------------------------------------------------ 232,300 242,600 -4.3
Other---------------------------------------------------------------------- 162,000 166,600 -2.8
By occupation:
Professional and managerial----------------------------------------- 247, 500 220,900 +12.0
Clerical and sales____________________________________ 1, 058. 600 1,037, 700 4-2.0
Service-------------------------------------------------------------------- 2,145,200 2,091, 900 +2.5
Skilled and semiskilled_______________________________ 1,245, 500 1,270,300 -2.0
Unskilled and other__________________________________ 1,935, 500 1,885,200 +2.7
1 Items may not add to total due to rounding.
The United States Employment Service in collaboration with the
California Department of Employment experimented with a labor inventory
communications system. This project (LINCS) is designed to provide
rapid long-distance transmittal of placement data and computer processing
of these data for use in screening large numbers of employer job order
specifications against worker qualifications, particularly in professional
occupations. It seeks new and speedier methods of aiding, not replacing,
human factors in worker recruitment, selection, and referral.
A fully operational teletype network, linking nine California offices, was
used to interchange labor supply and demand information. Experiments
in the integration of this network with the automatic data processing
phase were continuing at the end of the fiscal year. If the project proves
successful, it will be expanded to other areas. In addition to increasing
the timeliness and efficiency of placement operations, this system would
provide a rapid means of work force mobilization in the event of a national
emergency.
Professional Placement Services
With vastly increased demand for professional manpower and with
shortages existing in supply, the employment service strengthened its
professional placement service to help insure its best utilization. In fiscal
year 1963, placements in professional and managerial occupations rose to
147,500, compared with 110,900 in fiscal 1961.
59
Efforts were continued to reorganize employment offices in the 55 largest
metropolitan areas to meet the needs of the professional and technical
segment of the work force. In June 1963, professional and technical
workers numbered 7.8 million and accounted for about 1 out of 8 persons
in the labor force.
Convenient, suitably equipped offices were established along industrialoccupational
lines and were located in population centers to conform
closely to employment patterns of professional, technical, scientific, and
managerial persons. By the end of the fiscal year, an identifiable facility—
either a separate professional office or a division of a “white collar’’ office
serving professional, clerical, and sales occupations—was provided in 49
localities.
Accumulation of detailed information on the job content of professional
occupations was started by USES in cooperation with State employment
services. The information, which includes those jobs newly created by
the changing patterns of industry, will be refined ultimately into comprehensive
interviewing aids for use by local office personnel.
Bureau and State employment service representatives contacted professional,
business, and educational associations to acquaint them with the
professional placement program, and services were made available, upon
their request, to college officials in the placement of college dropouts and
graduates. During the period September 1961 to August 1962., over 10,300
students were placed in professional career jobs by the employment service.
Interarea Recruitment
With rapid changes in technology causing the obsolescence of some
occupations and industries, while creating others, and with an increased
demand for more and more highly skilled and professional workers, inter-,
area recruitment played a more crucial role in the Nation’s labor markets.
The professional office network at the end of the fiscal year consisted of
1x4 offices. Speedy, direct communication, improved procedures, and an
intimate knowledge of technological and professional occupations enabled
the staff in those offices to make a significant contribution in this highly
specialized placement field. The network circulated applicants qualifications
and employers’ orders, as necessary, and drew on the resources of
about 1,900 local offices throughout the Nation to provide needed services.
Local employment offices made greater use of current labor supply information,
developed by USES, in interarea recruitment for more intelligent
direction of clearance orders and for positive (on-the-spot) recruitment in
areas of labor supply.
Convention placement service was provided for n national professional
organizations with a total membership of more than iz8,ooo. Applicants
served included political scientists, psychiatrists, social welfare workers,
administrators, economists, statisticians, pharmacists, teachers, and
anthropologists.
60
Minority Groups
Procedures governing the treatment of discriminatory job orders from
employers were revised to provide that such orders be reported to fair
employment practice authorities lacking enforcement power as well as to
those which have such power. Further, the Bureau directed State agencies
to cooperate with such authorities by providing information relevant to
fair employment practices, developed through employment security operations.
The number of minority groups representatives appointed to State
agency administrative staffs was increased from 9 to 2.4. These staff members
are responsible for leadership and direction of the employment service
program for minority groups, interpretation of that program to the community,
and promotion of maximum utilization of minority workers.
To stimulate increased entry of Negroes into occupations formerly
denied them, the employment service participated in a series of regional
conferences with presidents and executives of predominantly Negro colleges.
The college officials were offered the assistance of the employment
service in solving problems involved in the development of trained manpower
to enter the new professional and technical jobs and in placing their
graduates and students.
To assure minority group members an equal opportunity to acquire
training provided under Federal legislation, the employment service included,
in its regulations and procedures governing the selection of trainees,
specific prohibitions against selection and referral for training on the basis
of race, creed, color, or national origin.
The public employment service cooperated with the President’s Committee
on Equal Employment Opportunity to insure compliance by Federal
contract holders with the terms of Executive Order 1092.5 banning discrimination
in employment with respect to such contracts, and also to promote
equal employment opportunity through the Plans for Progress and the
Union Program for Fair Practices. These two programs provide for the
voluntary participation of employers and unions in furthering equal employment
opportunity.
Youth
During fiscal year 1963, local employment service offices registered
nearly 3.3 million youth under zz years of age and placed about 1.5 million
in nonfarm jobs. They registered 134,000 more job applicants under zo
years of age than in fiscal year 196Z.
State agencies gave increased attention to improving the qualifications
of staff to provide services, and standards were developed by the Bureau
for use in selecting counselors and youth specialists. A State supervisor
of youth services was appointed in each State to provide overall guidance
to the youth program. Also, zo large metropolitan areas designated area
coordinators of service to youth. Emphasis was given to out-service
711—471—64- -5 61
training of State agency staff in colleges and universities, and new training
materials were developed by USES for use by State and local office staffs.
An estimated audience of over 40 million viewed the employment-oriented
film drama “When I’m Old Enough, Goodbye!’’ The film, directed to
potential school dropouts, was developed by the Bureau in cooperation
with the New York State agency. Available on loan through State employment
services to schools, parent-teacher groups, and local TV stations,
the film won an American Film Festival blue ribbon award. Some schools
which showed the film reported a reduction of from 33 to 75 percent in
dropout rates in the school term ended June 1963 as compared with the
year before.
Local employment offices had arrangements with local school systems
in 47 States whereby the schools referred actual and potential dropouts to
the offices or provided names of the young people. In the school year
1961-62., more than 49,000 dropouts were registered by local employment
offices in this special program, and nearly half of them were placed in jobs.
Youths constituted about a fourth of all persons enrolled in training
courses established under the Manpower Development and Training Act.
Nearly half of all initial counseling interviews held in fiscal year 1963 were
with youths. In the 1961-62. school year, employment service offices
worked with seniors in 10,600 high schools, an increase over 1960-61 of
more than 700 schools.
In hundreds of communities, employment service representatives participated
in community planning and action programs, such as apprenticeship
information centers, career guidance and job clinics, summer jobfinding
programs, services to youths paroled from correctional institutions, and
work experience-education programs.
Two demonstration projects to determine what could be accomplished
by an allout effort to resolve youth employment problems in concert with
community groups were begun in 1961 and continued in 1963, in Newark,
N.J., and St. Louis, Mo. Preliminary indications were that significantly
greater numbers of youths were using employment service facilities, and
more were being placed in jobs. A booklet, “Youth in the St. Louis
Labor Market,’’ was published in connection with the St. Louis project.
It provides information about hiring patterns of youths; it should be useful
to employment service and school counselors and to employers.
A study of school dropouts in Detroit, Mich., begun in May 1961 by the
Michigan Employment Security Commission and the USES in cooperation
with the Detroit Board of Education, continued throughout fiscal year 1963.
This study was designed to locate school dropouts from two city high
schools having high dropout rates, to determine the cost and problems
involved, and to provide appropriate employment services. The project,
hopefully, will provide information to aid youths in making the transition
from school to work.
62
Veterans
The Bureau’s Veterans Employment Service, through its veterans employment
representatives, cooperates with State employment security agencies
to insure that special job placement services are provided for war
veterans. The more than 2.1 million veterans in civilian life constitute
about half of all men in the labor force.
During fiscal year 1963, more than 1.5 million applications for work
at local employment service offices were filed by veterans, and more than
1.1 million nonfarm placements of veterans were made. While veterans
comprised only 13.4 percent of male applicants, they accounted for 30.5
percent of all male nonfarm placements during the fiscal year. This placement
ratio was approximately the same as that prevailing in the previous
few years, although veterans as a group were becoming older and were
encountering employment difficulties. In 1963, one out of three veterans
was over 45 years of age.
Disabled veterans are given preference in job placement by employment
service offices. Although this group accounted for only 37.1 percent of
the 355,100 new job applications from male handicapped persons in fiscal
year 1963, almost half (47.5 percent) of the 111,800 nonfarm placements of
male handicapped workers were for disabled veterans.
A sample survey taken during fiscal year 1963 indicated that veterans
constituted more than a third of all men enrolled in courses established
under the Manpower Development and Training Act of 1961.
State veterans employment representatives made 4,650 visits to local
employment offices during fiscal year 1963 to insure that veterans were
receiving adequate employment assistance. Formal evaluations were
made in about 1,450 of these offices to determine their effectiveness in
providing employment services to veterans.
Older Workers
Increased employment service efforts on behalf of older workers in fiscal
1963 resulted in more than 1,312.,400 nonfarm placements of workers aged
45 years and over, an increase of 3 percent over fiscal 1962.. More than
135,100 applicants aged 45 and over received counseling, an increase of 2.
percent over fiscal 1961. In addition, group guidance sessions, staff clinics,
and specialized “self-help” group sessions were used to assist older jobseekers
in overcoming attitudes which interfere with successful job search
or referral to training.
Two employer institutes on employment of workers over 40 years of age
were conducted by the Little Rock area employment office in cooperation
with the local advisory council. USES provided technical assistance.
The institutes gave employers an opportunity to learn from each other how
best to utilize the skills and knowledge of unemployed older workers.
A number o£ employers modified their hiring practices to employ more older
workers as a result of these institutes.
Special services provided in all States to workers facing age discrimination
in employment included testing, job counseling, and selection and referral
assistance in relation to both training and employment opportunities; and
educational and informational efforts were focused on employers and community
groups to change negative attitudes, correct misconceptions, and
eliminate bias and prejudice in the hiring of older workers.
The bulk of trainees under the Area Redevelopment Act were in age
groups in which family responsibilities fall most heavily. Over threefourths
were between 19 and 44 years of age. About 1 in 10 enrollees was
45 years of age or older. Least represented among ARA enrollees were
those under the age of 19; they constituted about 8 percent of the total.
Among older trainees under the Manpower Development and Training
Act program, nearly one-third were 3 5 years of age and over, while slightly
more than one-tenth were at least 45 years of age. State employment
security agencies urged employers to relax their age specifications so that
more older workers could be referred to training projects with adequate
assurance of job placement upon completion of courses.
The Bureau and State employment security agencies initiated a study of
employer attitudes and age restrictions in job orders in eight major cities
(Indianapolis, Louisville, Baltimore, Kansas City, Albuquerque, Memphis,
Houston, and Salt Lake City) during May and June 1963. The findings
of the surveys will be available in the fall of 1963.
Handicapped Workers
The focus of employment services to the physically handicapped, mentally
restored, and retarded during fiscal 1963 was on direct services to job
applicants, improving relationships with cooperating agencies, job promotional
activities with employers and labor organizations, and public
informational and educational activities.
State employment services received about 463,150 new applications from
handicapped jobseekers—a 5 percent increase over the previous year—and
made 171,415 placements. More than 5,000 of the new applicants were
rehabilitated clients referred to the employment service by vocational
rehabilitation agencies for placement help. During the same period,
counseling service was provided to 164,300 applicants.
Cooperation with the Vocational Rehabilitation Administration, the
U.S. Civil Service Commission, and the Veterans’ Administration was an
important phase of the employment service program to improve counseling
and placement services to the handicapped in fiscal year 1963. The employment
service staff of the Bureau and of the States also worked closely with
the President’s Committee on Employment of the Handicapped and with
State and local committees to develop a better climate for the placement
of the handicapped.
64
Counseling and Testing
Counseling and testing activities were accelerated as a result of programs
under the Manpower Development and Training Act and the Area Redevelopment
Act and because of the rising number of youths and women entering
the labor market. About 1,2.18,000 individuals received counseling service
in fiscal year 1963, nearly 50,000 more than a year earlier, and approximately
x,300,000 applicants received testing services, 113,000 more than in the
preceding fiscal year. The total in each instance was far higher than in
any previous year.
Increased attention was given to evaluation of the supervision of counseling
and testing services. USES prepared comprehensive outlines for use
in evaluation of the quality and quantity of these services at both State
and local levels. In addition, Bureau staff reviewed counseling and testing
activities in several States.
To insure that high quality counseling service was provided at the local
office level, approximately 630 State employment service counselors were
enrolled in out-service training courses at universities during the fiscal
year. Forty-six of the State and Territorial jurisdictions established, or
were committed to establish, separate State civil service or merit system
classification for counselors. The standards were developed by USES.
USES provided procedures for use by State employment services in the
counseling, testing, selection, and referral of prospective trainees under
the Manpower Development and Training Act and the Area Redevelopment
Act.
Continued progress was made in preparation of a system to translate
attributes of counseled applicants into the occupational groupings of the
new “Dictionary of Occupational Titles” to make them more useful in
counseling.
Employer and Union Services
The 1.5 million visits to nonfarm employers made by local employment
office personnel in fiscal year 1963 represented the second highest total in
10 years. In addition, more than z.i million telephone contacts were
made with employers. About 975,000 employers used the placement
facilities of the employment service during fiscal year 1963, compared with
900,000 in fiscal 1962..
To keep employment services geared to the needs of employers, USES
and State employment services must keep pace with, and anticipate, the
manpower aspect of technological developments and industrial changes.
In fiscal year 1963, efforts were made to obtain from employers more
comprehensive information on manpower problems resulting from skill
obsolescence, and assistance was given in developing and implementing a
system of “early warning” of impending technological changes. Cooperative
relations were developed with local personnel groups to resolve
significant community manpower problems.
65
The USES established an organizational unit during the year to develop,
on both national and local levels, techniques and procedures to improve
working relations with unions and to provide more effective service to
union members. Representatives visited officials of eight international
labor unions to describe the facilities and services available to their membership
through the employment service and to encourage collaborative
placement efforts.
USES officials visited management executives of 3Z multistate companies
and 34 national associations to help resolve manpower problems. Cooperation
was extended to the Post Office Department, the Internal Revenue
Service, and the General Services Administration in the development of
programs to broaden and strengthen their working relationships with the
public employment service. Arrangements were made for local employment
offices to cooperate with community groups and employers to obtain
work for 675 foreign students who needed summer employment in order to
continue their education in this country.
Provision of Manpower Services
Automation and Technological Change
The first results were obtained from special USES demonstration projects
which were undertaken to reveal manpower problems resulting from
automation and technological change, and the action phase of the projects
was concluded by seven State agencies (Nebraska, Oklahoma, Minnesota,
Wisconsin, Utah, New Jersey, and Colorado).
These demonstration projects were aimed at improving the performance
of the local employment service office in a labor market that appears to be
changing at an accelerating rate. The projects dealt with mass layoffs as
a result of automation; hard-core (2.6-week) unemployed in areas or industries
where automation has had a large impact; lengthening layoff periods
in seasonal industries; change in the nature of work and consequent shifts
in occupations and entry jobs; and statewide efforts to alert local offices
to specific local problems, small and large.
In addition to providing guidance for these projects, the USES established
a national reporting system to get early warning on nonseasonal layoffs of
100 or more workers for more than 4 weeks, with emphasis on specific
local office plans to meet the situation. Also, it requested State agencies
to have job analysts and employer relations representatives provide warning
of impending automation, and conducted special studies on manpower
problems associated with automation and technological change, including
experience of other countries, employer hiring policies, preferences and
practices, employer efforts to cushion the impact of change on present work
force, and impact of new devices and systems on managerial and supervisory
occupations. It provided guidance for on-the-job training provisions of
the Manpower Development and Training Act and the Trade Expansion
Act.
66
From all these activities flowed a mass of data, operational and statistical,
on which analysis was started. Preliminary findings indicated that (i)
automation had cost jobs, sometimes in obscure, hard-to-trace ways, but
especially in the drying up of entry jobs; (2.) purely defined, total automation
had not happened although departments or processes had been automated;
(3) use of automatic machines had accelerated as managers observed
advantages in quality, pace, cost, elimination of human drudgery, possibility
of small but economical production runs, and continuous machine use;
(4) good management practices did cushion the shock of job loss for workers
emotionally locked to a job; (5) skill levels did not change much, and
current staff was used without much retraining; and (6) job loss fell in most
cases to those least able to cope with it—frequently workers with onemachine,
one-employer experience who had never been out of work before
and were, in most cases, older and less educated than the “normal” jobseeker.
These projects and related programs provided information about changes
in jobs and occupations and gave guidance as to when and how the employment
service should offer its services to workers displaced, or to be displaced,
by automation and technological change or to those experiencing persistent
unemployment.
Manpower Development Through Training
The Federal-State employment security system and vocational education
agencies worked together in establishing institutional training projects
under the Area Redevelopment Act and the Manpower Development and
Training Act to provide occupational training for unemployed and underemployed
persons who could not otherwise reasonably be expected to obtain
appropriate full-time employment. The Area Redevelopment Act
provides for training of workers located in redevelopment areas only,
while the Manpower Development and Training Act is designed to assist
unemployed workers regardless of locality. Another major difference
between the two acts is that the maximum training time permissible under
the ARA is 16 weeks compared with 51 weeks under the MDTA.
Responsibilities of the Federal-State employment security system in
implementing training provisions of the Area Redevelopment Act include
area labor market analyses on which the designation of eligible areas is
based, analyses of training needs, selection and referral of individuals to
training, and payment of subsistence allowances to eligible trainees. It
is responsible also for job development and for job placement of ARA
trainees.
Selection of individuals for ARA training involves two major considerations:
Priority must be accorded those who are most disadvantaged in
today’s labor market—the so-called “hard-core” unemployed—and consideration
must be given to an individual’s capacity to benefit from the
training and his probable ability to obtain employment and perform satisfactorily
on the job upon completion of training. Employment services,
67
including counseling and testing, are used to select the best qualified
individuals for ARA training. By the end of June 1963, State employment
services had conducted nearly 55,000 screening and counseling interviews
and had administered more than 18,000 aptitude and proficiency tests to
prospective ARA trainees.
More than 9,000 trainees were enrolled in ARA training courses in fiscal
year 1963. Of these and the more than 3,000 trainees who were carried
over from the previous fiscal year, nearly 9,000 completed their training
during the year. About 70 percent of these graduates obtained employment,
mostly in training-related occupations.
During the fiscal year, 317 projects to provide ARA training to 13,900
individuals were approved by the Secretary of Labor, bringing the total
number of projects to 480 and the total number of trainees to 2.3,000 since
the beginning of the program. By the end of June 1963, ARA training
had been made available to eligible residents of 42. States, American Samoa,
and Puerto Rico.
During the year, USES, in cooperation with State employment services
in Rhode Island, Indiana, Michigan, Pennsylvania, West Virginia, and
Wisconsin, and six colleges and universities, started work on a followup
study of a selected group of ARA graduate trainees. The study was designed
to determine, for a group of training courses selected at random,
the extent of improvement in the labor market position of the trainees,
and to identify factors which contributed to the success of the training
program. The study will be completed in the fall of 1964.
Under the Manpower Development and Training Act, some 1,500 projects
for about 57,700 trainees had been approved in 49 States, the District of
Columbia, Puerto Rico, and the Virgin Islands by the end of fiscal year 1963.
Allowance and training cost estimates for these projects totaled about $71
million, according to preliminary reports, with nearly two-thirds earmarked
for expenditure in fiscal 1964. Preliminary data indicated that by
June 30, 1963, over 30,000 trainees, more than half of the approved trainee
total, had already started training in about 1,075 projects.
About 70 percent of the 6,300 trainees who had completed MDTA courses
through mid-May had obtained employment as of June 30, almost wholly
in training-related occupations. State employment services accounted for
8 out of 10 job placements among these trainees.
More than three-fifths of the MDTA trainees were men. With MDTA
programs focused on meeting the needs of primary wage earners, over
three-fourths of the men and about two-fifths of the women were heads of
families or households. About three-fourths of the men obtained employment
after completion of training, as compared with close to three-fifths
of the women.
Nearly half of the MDTA trainees were drawn from the ranks of the
long-term unemployed, i.e., unemployed for 15 weeks or more. Nearly
one-fifth of the trainees had been jobless for 5x weeks or more. Although
the long-term unemployed had somewhat more difficulty in obtaining
68
employment, even after successful completion of training, than those who
had had a shorter span of joblessness, MDTA training appeared to contribute
significantly to relatively sizable job placement rates among these workers.
About 4 out of every io of the MDTA trainees had not completed high
school; i out of io had only a grade school education or less. Successful
completion of MDTA courses appeared to help in reducing trainee placement
difficulties regardless of previous level of education.
Generally, older MDTA trainees experienced greater difficulty in finding
jobs than trainees in younger age groups; however, MDTA programs
appeared to contribute appreciably to relatively high placement rates in
all age brackets.
Nearly three-tenths of the MDTA trainees were approved for training
in skilled occupations, over one-fourth semiskilled, and close to one-fourth
in clerical and sales occupations. Principal occupations in which training
was approved included general machine operators, automobile mechanics,
stenographers, typists, clerk-typists, licensed practical nurses, welders, auto
body repairmen, aircraft subassemblers, electronics mechanics, solderers,
nurse aides, and orderlies.
Through June 30, 1963, in connection with the selection of unemployed
persons for training, local public employment offices conducted about
345,000 screening interviews and 98,000 counseling interviews, administered
57,700 General Aptitude Test Batteries, 55,2.00 specific aptitude tests, and
6,zoo proficiency tests. During the year, local offices referred more than
39,000 individuals to MDTA training.
Community Employment Development
In the majority of the Nation’s larger communities, local public employment
offices during fiscal year 1963 cooperated with development organizations
to retain existing industries, to assist those desiring to expand, and
to attract new employers to the area. A preliminary review of a national
survey indicated that local employment offices were cooperating with
three-fourths of the more than 4,000 organizations (concerned with
community development) which were in existence in 1963.
As a part of its regular operations, a local employment office obtains
information on employment trends, unemployment problems, demandsupply
relationships, occupational shortages and surpluses, and manpower
requirements and resources. Because of the availability of such data, the
local office is usually the first agency to recognize existing or developing
employment problems and to alert the community to them. Helping
community leaders to understand and anticipate the consequence of economic
and technological changes on the local labor market is a basic
function of the community employment program. The program provides
for USES participation in community employment development organizations
by assigning local office representatives to serve as members of, or
manpower consultants to, such organizations. In this way, the total
69
resources of the local office are made available to the local group in the
development of programs to prevent or alleviate unemployment.
The smaller communities program has proved to be an effective vehicle
for the extension of employment services to rural counties remote from
existing public employment offices. The demand from such areas for
employment services was met in some States by smaller communities
mobile teams, composed of State employment service personnel who move
from one rural county to another at the invitation of local employment
office managers and community leaders. During fiscal year 1963, techniques
were developed to assist the mobile team in counseling and testing rural
people, particularly youths; in placing individuals in available jobs; and
in preparing an inventory of the occupational potential of the local work
force for use by the community in attracting new industry. This information
was used also in determining training needs and training potentialities
for ARA and MDTA training programs. The inventory program provided
local offices with detailed occupational information on thousands of individuals
who previously had not been in contact with the employment
service.
Services were provided to 33 rural areas in 10 States in fiscal year 1963.
A total of 2.7 States indicated an interest in initiating the smaller communities
program in fiscal year 1964.
Manpower Mobilization Planning
During fiscal year 1963, plans were developed for a “built-in” manpower
readiness in those geographic areas which will be most likely to feel the
manpower impact of an enemy attack on this country. The major technique
used in the project is the identification of already-functioning groups of
workers with peacetime missions closely related to the type of survival
activity for which there is likely to be a demand. Other arrangements
included agreements between employers and employees to insure their
immediate availability for emergency assignment and for any necessary
training, including the reorientation of their activity toward a postattack
environment.
International Manpower Services
General orientation programs were provided by the Bureau for 436
foreign visitors to acquaint them with the role of the United States Employment
Service and the Unemployment Insurance Service in the American
labor market. About 100 of the participants visited local employment
offices to observe how services were provided to workers and employers.
Intensive programs of 3- to iz-month duration were developed for 30
employment service technicians from 11 different countries. These participants,
under grants from the Agency for International Development or
the International Labor Organization, were specialists who came to learn
U.S. techniques in such functions as labor market analysis, selection and
placement, counseling, ocrnpational analysis, and manpower planning.
70
Two technical manuals, “Techniques for Determining Manpower Skill
Needs and Training Requirements” and “Demographic Techniques for
Manpower Planning in Developing Countries,” were completed for the
Agency for International Development and were distributed to AID
missions throughout the world.
Employment Service Tools
Organization and Management
Improvement of the organization and management of the public employment
offices in the 55 largest metropolitan areas continued to be of major
concern. Technical work concerned with this improvement was continued
in 41 of these areas in fiscal year 1963 and was started in 10 other areas.
Although the rate of progress in reorganization during 1963 was limited
by budget considerations, a systematic program was undertaken of assisting
State agencies in the review of metropolitan area local office operations.
During the first year of this program, reviews were made in 5 of the 55
largest metropolitan areas.
A continuing plan of action to increase the effectiveness of management
and operations of public employment services was launched with Bureau
evaluations of one agency’s State office and two large local offices. Technical
assistance and training were provided the State agency in correcting
deficiencies found through the evaluations.
In connection with the overall improvement program, a “Handbook of
Local Office Organization,” the first of a series relating to State administration
and local office management, was completed during fiscal year 1963,
and development was started of some of the other handbooks in this series,
including evaluation, planning, and supervision.
Occupational Analysis
The third edition of the “Dictionary of Occupational Tides” (DOT)
will provide current information on jobs in the U.S. economy. By yearend,
97 percent of the editing of job definitions was completed; outlines of the
new classification structure were organized; and 50 percent of the individual
jobs were classified. Volume I contains job definitions of several thousand
new jobs and many changes which have occurred in jobs since the 1949
edition of the DOT. The definitions reflect alterations in occupational
techniques resulting from recent changes in industry and in industrial
processes. Volume II contains the new classification structure which
provides two arrangements of occupations to be reflected in a single code
system to serve the needs of placement and counseling. A conversion table
relates the present and the new classification systems. The new Dictionary
should be available for use early in fiscal 1965.
An intensive industry-by-industry survey of jobs was made by the eight
occupational analysis field centers in California, the District of Columbia,
Michigan, Missouri, New Jersey, North Carolina, Washington, and Wis-
71
consin, to determine the existence of, and to provide current analyses for,
all jobs. A major effort was started to keep currently abreast of the continuous
job changes taking place in industry.
In addition, a number of new projects were started in fiscal year 1963 to
provide job information to meet specific needs: a study to determine the
nature and extent of job information needed in providing placement services
to professional workers; a study to determine the effects of automation
on the job structure of an industry—printing and publishing, and others;
and a project to update job descriptions for “Occupations in Electronic
Data-Processing Systems,” originally published in 1959.
Programed training materials for analysis of physical demands and
working conditions requirements of jobs were completed and tested by the
training of about 50 staff members. The test demonstrated the superiority
of the new method over the lecture-type training process formerly used.
Test Development
To meet increasing demand for test-selected workers with potentialities
for learning occupational skills, USES accelerated research in the development
of aptitude test batteries. This research, conducted in cooperation
with employers, trade associations, unions, and joint apprenticeship
committees, included occupations for which training courses were established
under the Manpower Development and Training Act and the Area
Redevelopment Act, as well as occupations requiring formal apprenticeship
and those which had emerged as a result of technological changes. In
all, new USES aptitude test batteries based on the General Aptitude Test
Battery were developed for 50 occupations, including occupations in the
personal service and automatic data processing fields and in the air transportation
and iron and steel industries. Research was undertaken on
other occupations, including those in the atomic energy field and electronics
and printing industries.
Greater use was made of the Spanish edition of the USES General Aptitude
Test Battery (BGPA—Bateria General de Pruebas de Aptitud) to
meet needs of Cuban refugee centers and employment service offices throughout
the country. To permit its more efficient use, test research on cultural
effects was undertaken which will entail the testing of approximately
1,000 employed persons in Puerto Rico.
In the United States, in response to demand for use of the General Aptitude
Test Battery for educational-vocational counseling of students in
lower high school grades and for use with dropouts from these grades,
USES initiated a series of studies in 1958 to determine (1) effects of maturation
upon aptitude scores during the highschool years, and (2.)relationship
between scores on the GATB taken in lower high school grades and subsequent
performance in high school and in occupations and college z years
after high school graduation. During fiscal year 1963, progress was made in
analysis of data for the maturation and high school followup studies, and
data collection continued for occupational and college followup studies.
72
The 19 State employment security agencies participating in the studies
were successful in identifying the employer or the college attended by
individuals in the sample 1 years after high school graduation.
A study was begun during fiscal 1963 to determine usefulness of 9th and
10th grade norms on the GATB for predicting performance in vocational
high school printing training and in printing occupations after high school
graduation. Data for the study are being collected in four high schools
in three States. This study should serve as a basis for extension to other
vocational areas.
Work progressed on a complete revision being made of the USES typing,
dictation, and spelling proficiency tests which are administered to more
than 600,000 persons each year. Six forms of a new 5-minute typing test
were released for operational use in local employment service offices. Separate
norms for manual and electric typewriters were developed for the
new test. Work also continued on development of new dictation test
forms. Preliminary work was completed on development of a written
proficiency test for electronic technician jobs.
Area Labor Market Information
Greater use was made in fiscal year 1963 of area labor market information
collected as a part of the operations of the employment security program.
A major factor in this expanded use was passage of the Public Works
Acceleration Act which authorized the expenditure of $900 million in
Federal funds for initiation and acceleration of public works projects in
redevelopment areas and in areas designated by the Secretary of Labor as
having had substantial unemployment for 9 of the preceding 11 months.
Requests were received from Members of Congress, the Area Redevelopment
Administration, and other Federal agencies, State and local officials,
community development groups, and civic organizations for special area
labor market surveys to determine eligibility for assistance. Reports on
such surveys were submitted by State employment security agencies for
about 450 additional labor market areas during fiscal 1963. Of these, nx
were recommended by the Secretary of Labor as eligible for designation
under both the Public Works Acceleration Act and the Area Redevelopment
Act. More than 2.00 other areas were recommended for designation under
the accelerated public works program alone.
In connection with the annual review required under the Area Redevelopment
Act, some 2.8 areas were recommended for termination of eligibility
under ARA.
At the beginning of the fiscal year, 51 major areas and 198 smaller areas
were classified as “areas of substantial unemployment.’’ Unemployment
was persistent in 19 of these major areas and 104 of the smaller areas.
In addition, a total of 394 very small areas had been identified as having
“substantial and persistent unemployment.’’ All areas with persistent
unemployment problems were recommended to the Department of Commerce
for designation as redevelopment areas.
73
The number of substantial unemployment areas declined during the year
to 39 major areas (17 persistent) and 174 smaller areas (102. persistent) in
June 1963. Among areas moving to a moderate unemployment rating was
the key automotive center of Detroit—the first time this area was off the
substantial unemployment listing since 1957.
The list of “very small areas’’ of substantial and persistent unemployment
expanded during the year to a total of 469 by June 1963. Additions
to this list are based in part on the extent to which such areas are called
to the attention of the USES for special surveys and do not necessarily
reflect a recent worsening of the local unemployment situation.
The following table compares the yearend (June 1963) classifications of
150 major labor market areas with those for May 1963 and June 1961.
June 1963 May 1963 June 1962
Total, all groups (major areas).__ ______ __________ _____ 150 150 150
Group A (overall labor shortage)________ _ ______ ________ ... 0 0 0
Group B (relatively low unemployment)_______________ _______ 16 9 10
Group C (moderate unemployment)__ ____ . _ . _________ 95 98 89
Group D (substantial unemployment)____ _ _____ .... ... 28 31 42
Group E (substantial unemployment)____ __________ _______ 9 8 6
Group F (substantial unemployment)__________ _____________ 2 4 3
The USES area classifications are also used to assign special preference to
areas of high unemployment in the award of Federal procurement contracts
under Defense Manpower Policy (DMP) No. 4. Such preference resulted
in the award of defense contracts—which would otherwise have gone
elsewhere—to firms located in areas with high unemployment in the amount
of $78.5 million during the first three quarters of fiscal year 1963 (fourthquarter
data not yet available). In all, areas of substantial unemployment
received close to $17 billion in defense contracts during this period. Firms
in areas with relatively persistent unemployment are also eligible for
assistance in the form of Small Business Administration loans at reduced
interest rates.
During fiscal 1963, the manpower phases of 79 overall economic development
plans (comprehensive analyses made by redevelopment area committees
of local assets, needs, and the means for achieving economic recovery)
were reviewed in detail. The total number of these plans reviewed since
passage of the Area Redevelopment Act was thus increased to 143. A
special report procedure was developed during the year to provide bimonthly
information to ARA on current employment and labor requirements in
firms receiving or directly benefiting from ARA loans and grants. Nearly
16,600 workers were employed in June 1963 in 160 firms benefiting from
ARA assistance. These firms were expected to employ 53,100 workers
when in full operation.
Occupational Information
The “Guide to Local Occupational Information’’ published early in
fiscal 1963 provided a ready reference to local guides and area skill surveys
74
completed since 1956. It stimulated efforts among State agencies to expand
the preparation of individual occupational guides which present information
on job duties, employment opportunities, training and experience
requirements, methods of entry and promotional opportunities, and wages
and working conditions in particular labor markets.
Area skill surveys, analyzing current and future demand and supply for
an entire area, by occupation, were completed by 16 States for 15 labor
market areas during the fiscal year. By yearend, a total of 145 skill surveys
had been completed since the program’s initiation in 1956. Counselors,
school administrators, and industry and other community leaders utilize
these surveys as a guide to manpower planning. A variation on the area
skill survey, the training needs survey, was developed during the year to
meet the needs of MDTA and ARA training programs.
The 1963-64 edition of “Job Guide for Young Workers” was well received.
Issued in March 1963, the entire first run for the Bureau of 45,000—the
largest ever published—was exhausted before the end of the fiscal year, and
an additional 15,000 copies were sold directly through the Government
Printing Office. To meet the expected demand for 1964, a new printing of
15,000 copies was ordered. The guide provides information for more than
100 entry occupations frequently held by young people with a high school
education or less, and contains data on the duties and characteristics of
each job, qualifications required, employment prospects, advancement
opportunities, and methods of entry.
The President’s Committee to Appraise Employment and Unemployment
Statistics (Gordon Committee) cited absence of a series on unfilled jobs as
“one of the more conspicuous gaps in our labor force information.” Exploration
into the feasibility of developing job vacancy data was launched
and will be continued during fiscal 1964. Vacancy data can provide economic
insights, aid in determining local training needs, and help in job
counseling and placement.
Industry Analysis
Manpower surveys were prepared for the missiles, spacecraft, and aircraft
industry and the footwear industry. These studies, based largely on establishment
reports submitted by State employment security agencies, reviewed
employment trends, economic outlook, and other significant manpower
developments within the industries. The missile, spacecraft, and aircraft
survey—the fourth of a series on the aerospace industry—became one of
the Nation’s principal sources of manpower information covering about 2.0
industries engaged in aerospace work. Three other surveys—bituminous
coal mining, department stores, and tires and tubes—were in final draft at
fiscal yearend.
The scope of the industry manpower survey program at the close of the
fiscal year was being expanded considerably to meet increasing need for
more detailed industry-occupational information on manpower development
and automation impact. Supplemental questionnaires were designed for
75
special industries scheduled for survey in the first half of fiscal year 1964 to
determine the impact of technological change on the industries’ occupational
composition, occupational opportunities for on-the-job training, and extent
to which workers displaced fiom the industries participated in MDTA
and ARA training programs.
Labor Market Operations Research
More than 50 special studies were undertaken by 2.5 State employment
security agencies during the fiscal yeai to provide labor market information
needed for policy formulation, program planning, and evaluation. These
studies included analyses of local employment office data on characteristics
of, and services provided to, jobseekers; services to individual firms in
terms of results obtained with respect to job orders received and placements
made; channels used by workers to obtain jobs and channels through which
employers recruit workers; and new hires and placements, by size of firm
and industry.
A monthly report was developed during the year to analyze employment
service activities in depth and to present information on labor market
conditions affecting the employment service program.
FARM LABOR SERVICES
Farm placement and related services are provided by the employment
security agencies of the 50 States, Puerto Rico, and the Virgin Islands.
In fiscal year 1963, the Office of Farm Labor Service in the Bureau of Employment
Security was reorganized as a full operating service, reporting
direct to the Bureau Administrator.
During the year, the Bureau and State employment security agencies
concentrated their efforts in farm labor service on more effective utilization
of domestic agricultural workers, improving living and working conditions
of migratory farmworkers, reducing need for supplemental foreign workers,
and preventing adverse effect on the wages and working conditions of
domestic farmworkers in areas where Mexican and other imported foreign
workers were used. To accomplish these objectives, the annual worker
plan was strengthened to provide continuous employment for intra-area
and out-of-area workers; efforts were made to improve working and living
conditions (housing, wages, transportation) for migrant farmworkers;
and improvements were made in selecting workers for out-of-area referral
at peak crop seasons, in collecting and validating employment and wage
information, and in certification procedures for the admittance of aliens
seeking permanent entry under the Immigration and Nationality Act.
The continuing rapid advance of technology and farm mechanization
had a significant effect on recruitment of agricultural workers. It disrupted
established migratory patterns, decreased the demand for seasonal farmworkers,
and made employers more demanding with respect to workers’
76
skills. It highlighted the importance of training unskilled workers—•
displaced as a result of the technological revolution in agriculture—for
higher skilled jobs.
Domestic Farm Labor
Farm Placements
Total agricultural employment continued its long decline—averaging
5.0 million per month in fiscal year 1963, compared with 5.4 million the
previous year, according to the Bureau of Labor Statistics. The 1963
total included 1.7 million hired farmworkers, approximately the same as
in the previous year. Decreases were reported in the number of farm
operators and unpaid family workers, who totaled 1.5 million and 900,000,
respectively, compared with x.7 million and 1.0 million in 196X.
The same technological advances which have been responsible for declining
farm employment in the past were at work in fiscal year 1963. For
example, 70 percent of the cotton harvest was handled by machine, compared
with 59 percent the year before. Also, greatly increased use was
made of chemical sprays to kill grass and weeds in row crops. These and
other changes in production methods eliminated thousands of seasonal
jobs or shortened periods of employment. The rate of unemployment in
agriculture ranged as high as 19 percent during the year, substantially
higher than in nonagricultural industries in all except peak harvesting
months.
Those recruited by local employment offices for farm jobs ranged from
year-round workers to migrants, from urban youth to housewives, and
from reservation Indians to Puerto Rican contract laborers. As a part of
their service to agricultural employers and to relieve potential labor shortages,
public employment offices also provided information service and
assistance in planning schedules to operators of custom grain combines
and mechanical cottonpickers.
Further reflecting the rapid technological change in agriculture, local
employment offices reported a total of 7,9x3,543 farm job placements in
fiscal year 1963, down more than a million from the 9,0x8,451 total for the
year before. During 1963, local office staff made 401,717 visits to agricultural
employers; increased referrals of registered applicants selected from
the files; registered more workers for migrant labor jobs; and curtailed
mass referrals of unregistered applicants. Although use of farmworkers
from local sources increased in 1963, recruitment of labor through the
intrastate and interstate clearance system continued to be a large-scale
activity. In California alone, more than 60,000 nonlocal domestic farmworkers
were employed in a single month.
Better utilization of local labor was reflected in increased day-haul
operations, a method by which local labor is transported to farm jobs on
a daily basis. In calendar year 196X, the number of workers transported
on peak days through day-haul activities reached nearly 3x0,000.
711-471—64------ 6 77
An “established” day-haul pickup point is one that is set up but is not
supervised by the State employment security agency; an “operated” dayhaul
pickup point is both set up and supervised by the agency. While the
number of towns with State-operated day-hauls decreased slightly to 717
in 1962., the number of established day-haul points increased by 60 to 1,466,
with an overall increase of 3,400 persons transported on peak days. Since
1958, the number of day-haul workers transported from established points
has risen by nearly 15,000, reflecting better coverage of areas distant from
the local office.
Agriculture as a source of employment for youth made gains during the
year, and day-haul continued to be the major method for using youth in
farm employment. State agency-operated day-haul points for youth only
were set up in 11 percent more towns in 1962. than in the previous year.
State agency-established day-haul points showed even greater advances.
The number of youths transported on peak days increased by 33 percent to
15,410. Thousands of other young people participated in joint youthadult
day-hauls or were referred as workers to fill regular farm jobs for
which they were qualified.
Over 1,000 youths were placed in live-in farm jobs during vacation periods.
Live-in programs usually involved recruitment of two types of workers—
city youth with no farm experience and vacationing agricultural students.
A live-in pilot project in a Colorado beet area demonstrated that youths
can do as well as, if not better than, the migrants usually employed for
this work.
By means of “Farm Employment Days,” local employment offices helped
farmworkers wanting jobs to meet farm employers needing help. One
thousand such days were held in 1961. Because of the growing need for
individually selected skilled workers, 37 percent more offices used this
device for effecting placements.
Over 35,000 Indians from 11 States were recruited for off-reservation
farmwork in 1961.
The use of Puerto Rican contract workers reached a peak of 11,900 in
August 1961, and then dwindled to insignificance from September to March.
Under agreements with the Commonwealth of Puerto Rico, workers were
brought in for farmwork along the Atlantic seaboard from Massachusetts
to Florida, with New Jersey using the largest number of workers.
Migratory Farmworkers
In calendar yeai 1961, a total of 10,051 migrant groups and crews, representing
176,670 individuals, were scheduled for successive farm jobs under
the annual worker plan. Group contacts increased 9 percent over 1961.
In the Florida-itinerary phase of the annual worker plan, farm labor personnel
and employers from 13 States met with crew leaders for pooled
interviews at designated locations and interviewed 717 groups and crews,
representing 33,879 woikers. A number of Texas crews whose work had
78
taken them across the Gulf States to the citrus groves in Florida participated
in the itinerary for the first time.
In fiscal year 1963, new procedures were adopted for identifying migrant
workers by name, address, and social security number on the manifest
covering each group of workers referred for interstate farm employment.
This identification, which in most cases also indicated sex of worker,
provided information on labor source and potential new recruitment sources.
It was a first step in assembling information—necessary for selective placement—
on individual migrants as to those who report as scheduled, perform
satisfactorily, and remain on the job until it is completed.
In an effort to attract out-of-State workers to Florida to substitute for
contract workers from the West Indies, Florida farm labor representatives,
in a controlled experiment, went to Georgia, Louisiana, Mississippi,
South Carolina, and Tennessee to recruit for the winter season. Also,
citrus growers agreed to improve working conditions.
Most farm labor information centers, which are located strategically
to serve migrant workers, reported increases in the number asking for
information about farm labor demand and supply. At the end of June 1963,
a total of 8,860 migrants had passed through the Hope, Ark., information
center since its opening in the spring. This total compared with 7,468 at
the same time in the previous year. Sikeston, Mo., reported 6,02.4 compared
with the previous year’s 5,643; Little Creek, Va., reported a slight drop—
13,799 compared with 13,935 in
Continued attention was given during the year to implementing the
Secretary’s regulations (2.0 CFR 602..9) relating to the use of public employment
service facilities in the interstate recruitment of agricultural workers,
to insure that wages offered were no less than those found prevailing among
workers similarly employed within the area of employment. The Bureau
worked with State employment security agencies to insure consideration of
employer and worker complaints relating to these regulations. A number
of States passed legislation to improve housing, transportation, and other
living and working conditions affecting migratory workers.
Pilot programs in Elizabeth City and Hendersonville, N.C., which
were being carried on by cooperating Federal agencies concerned with
providing improved services to migratory workers and their families,
completed the first year of operation, and services were expanded.
The Bureau participated with State employment security agencies,
and other Federal agencies and offices, in developing programs under the
Manpower Development and Training Act and the Area Redevelopment Act
to train unemployed and underemployed rural workers for both farm and
nonfarm occupations. The occupations for which such workers were
trained included farm machinery operation and maintenance, vineyard and
tree pruner, general farmhand, dairy hand, forester aid, cattle rancher,
and irrigator. By the end of the fiscal year, a total of 95 such projects,
with 1,075 trainees, had been approved by the Bureau.
79
Tn the first training class composed exclusively of migrant farmworkers’
one group was trained to be general farmhands; the other, combination
welders.
The Office of Farm Labor Service made a nationwide survey of the scope
of agricultural mechanization and other technological activities in high
labor-using crops. The purpose of the study was to determine how the
farm labor force was affected and what training should be provided for
farmworkers under the Manpower Development and Training Act.
Legislative Action
By the end of fiscal 1963, six bills on migratory labor, sponsored by Senator
Harrison A. Williams, Jr. (N.J.), had passed the Senate and had been
sent to the House. The proposed legislation provided for educational
opportunities, day care for children, sanitation facilities, regulation of
child labor, required crew leader registration, and a national advisory
council on migratory labor.
A major breakthrough in legislative action with respect to living and
working conditions was made in September 1961 with the passage of the
Migrant Health Act (P.L. 87-691). Funds were appropriated by the 88th
Congress to help establish family health services clinics under the act
and to carry out other health projects tor migratory workers and their
families.
Foreign Farm Labor
When qualified domestic farmworkers are not available to meet peak
seasonal needs of agriculture, growers may request use of foreign workers.
However, the Bureau’s regional offices will not approve foreign-worker
quotas for States until employment security agencies inform them that
there are no available domestic workers and that the employment of the
foreign workers will not affect adversely the wages and working conditions
of U.S. workers.
Use of contract foreign workers as temporary supplemental labor on
U.S. farms continued to decline in fiscal year 1963. Average monthly
employment of these workers, at 61,000, was 9,000 below the previous
year’s average. The greatest number reported to be working at any one
time in fiscal 1963 was 117,000, about 43 percent fewer than in 1961; the
lowest number was 30,100.
The decline in use of Mexican nationals which began in 1959 and continued
through fiscal 1963 accounted for nearly all of the decrease in use of
foreign workers. Average employment of Mexican contract workers
dropped from 60,000 in fiscal 1961 to 51,000 in 1963 > peak employment, from
109,000 to 111,000. Rapidly expanding mechanization in cotton harvesting,
particularly in Texas, was a principal cause for the decreased demand.
During the year, 195,515 Mexican nationals were contracted under the
authorization of the Agricultural Act of 1949 (Public Law 78) and the
international agreement with Mexico. They worked in 10 States for
80
approximately 30,500 farm employers. California led other States in their
use, by a substantial margin. These “braceros” were used principally in
cotton, tomatoes, citrus fruits, strawberries, and lettuce. In all, 19,097 of
these workers were recontracted during the year and 103,496 were returned
to Mexico, including workers who were already in the United States under
contracts executed during fiscal 1961.
Bureau-operated reception centers at Hidalgo, Tex., and Nogales,
Ariz., were closed during the latter part of the year because of the
substantial reduction in number of Mexican nationals being received for
processing and referral to employers.
The decreased number of Mexican nationals brought into the United
States in fiscal 1963 under Public Law 78 was partially offset by the entry
of more Mexican immigrants with permanent visas (so-called “green-card
workers”). An estimated 33,000 to 38,000 of these persons worked in
California agriculture at peak season in the fall of 1961; they comprised
about one-fourth of the State’s total domestic agricultural work force at
peak.
During fiscal year 1963, the Department of Labor, in accordance with
section zxz(a)(i4) of the Immigration and Nationality Act, was consulted
for certification purposes only if Z5 or more workers requested visas for
entry to work with a single employer. However, during 1962., procedures
were developed, to become effective July 1, 1963, providing that each
employer desiring one or more foreign workers for permanent employment
in the United States must obtain from the public employment service a
job-offer endorsement, thus giving that office an opportunity to fill the
jobs with domestic workers. The endorsement, stating that the person
offering the jobs is the employer in fact and that the work represents bona
fide year-round employment, was designed to help the Department of
State, in considering whether a visa should be issued, to determine that the
prospective immigrant would not become a public charge.
Employment of permanent visa holders who live in Mexico and commute
to jobs across the border was the subject of litigation during fiscal year
1963. The issue before the court was whether the Attorney General and
the Commissioner of Immigration and Naturalization could be required to
exercise their discretion to change the status of commuter aliens from
immigrant to nonimmigrant and to deny them the right to commute
(Texas State AFL-CIO et al. v. Fobert F. Kennedy et al."). The decision of
the U.S. District Court on April 11, 1963, was that they could not be
required to do so. The plaintiff appealed the decision to a higher court.
Employment of West Indians averaged 9,000 throughout fiscal 1963,
virtually the same as in the previous year, but peak employment of these
workers increased sharply from iz,ooo to 14,500. Peak employment of
Canadians in the United States, used principally for Maine’s potato crop,
was 8,700 in 1963, slightly more than in 1961. Other foreign farmworkers
employed in the United States were Japanese (about i,zoo), Filipinos (100),
and Basque sheepherders (1,100).
81
Compliance Activities
To insure compliance with the Migrant Labor Agreement and the
Standard Work Contract, and to investigate complaints and other matters
relating to the Mexican labor program, Bureau representatives made the
following investigations in fiscal year 1963:
• Housing: 9,311 inspections; deficiencies found in 3,136cases, about
one third.
• Central restaurant facilities: 1,010 inspections; deficiencies, 364,
or 18 percent of installations.
• Vehicles used by employers to transport Mexican workers: 6,015
inspections; deficiencies on first inspection, 1,2.00, or 16 percent.
• Payrolls and records: 36,189 inspections; violations, z,88i.
Prompt action was taken to effect settlement of amounts due Mexican
workers.
• Complaints: 3,157 investigations; violations, 1,186. A total of
$110,767 was collected on behalf of Mexican workers as a result of
investigations and inspection activity. Forty-one employers were
declared ineligible to employ Mexican contract workers because of
serious violations of the agreement and work contract.
As of June 30, 1963, the U.S. Government, in its capacity as guarantor
of the work contract, paid $8z,zo6 under the guarantee provision of the
Migrant Labor Agreement with Mexico. At the end of the fiscal year,
$39,860 had been recovered from defaulting employers. Total losses
attributed to death, insolvency, and other causes amounted to $3,847. Of
the outstanding balance, $11,013 was pending collection through litigation
and $16,474 through administrative action.
Wage Program
Under the Migrant Labor Agreement with Mexico, Mexican nationals
may not be paid less than the rate specified in the Standard Work Contract
or the rate determined by the Secretary of Labor to be prevailing among
domestic workers doing similar work in the area of employment, whichever
is higher. Based on wage surveys conducted by State employment security
agencies, the Secretary made 1,076 prevailing wage determinations in fiscal
year 1963 covering 1,181 wage-finding classes in 18 States. Reflecting the
sharp decline in Mexican contract worker employment, 10 percent fewer
determinations were issued in fiscal year 1963 than the 1,395 made in 1961.
Action was taken to prevent the employment of foreign agricultural
workers on the east coast (principally workers from the British West Indies
and Bahamian Islands) from adversely affecting the wages and working
conditions of U.S. workers similarly employed. Public hearings were
held in Boston, Miami, Trenton, and Winchester, in November and December
of 1961, to get the views and comments of interested parties. As a
result, wage standards were issued for each of the 11 States in which there
had been significant foreign worker employment. The prescribed hourly
82
rates ranged from 75 cents and 80 cents in Virginia and West Virginia,
respectively, to 95 cents in Florida and $1 in New York, New Jersey, and
all of the New England States.
After a long period of general stability, wage rates in areas of Mexican
worker employment showed an upward movement beginning in i960.
This uptrend received strong impetus from adverse effect determinations
issued in the spring of 1961 applicable to the 2.4 States in which Mexican
workers had been employed in 1961. The hourly rates involved ranged
from 60 cents in Arkansas to $1 in 16 States. The impact of the actions was
immediate. During the entire 1963 fiscal year, wage rate increases occurred
in about 38 percent of the cases for which comparisons could be made with
prior year levels.
The strength of the uptrend in wage rates in areas using Mexican workers
was indicated by results of a study of activities in the seven States which
accounted for virtually all of the Mexican contract worker employment.
Rates in these activities were about 12.. 5 percent higher than in 1958.
During 1961, they rose by about 3 percent over i960 levels, while in 1961
there was a further increase of more than 4.6 percent.
UNEMPLOYMENT INSURANCE
The Federal-State unemployment insurance system provides workers
with partial compensation for wages lost during periods of involuntary
unemployment. It acts as a stabilizing influence on the economy by sustaining
purchasing power during downward swings of the business cycle
and provides some of the impetus needed for the recovery phase. In fiscal
year 1963, about 47.0 million workers in commerce, industry, and government,
including the Armed Forces, were covered under the system. A
total of 815,000 railroad workers were covered under a separate unemployment
insurance system administered by the Railroad Retirement Board.
Each State has its own unemployment insurance law and its own benefit
fund. Benefits for unemployed Federal workers and ex-servicemen are
financed through direct Federal appropriations but are paid by the States,
as agents of the Federal Government, on the basis of the State law. In
fiscal year 1963, about z.4 million employers were subject to State unemployment
insurance taxes, and they paid about $3.0 billion in such taxes.
In Alabama, Alaska, and New Jersey, employees as well as employers
paid UI taxes.
Benefits of $1.9 billion were paid to 6.5 million insured workers for 86
million weeks of unemployment during fiscal year 1963. Of total benefits,
$1,789 million was paid out of State funds and $152. million out of Federal
appropriations to former Federal civilian employees and military personnel
following their separation from the Armed Forces.
In addition to the above benefit payment operations, the machinery of
the UI system was utilized for the payment of allowances under two Federal
83
programs—the Area Redevelopment Act of 1961 and the Manpower Development
and Training Act of 196Z. The latter began operations early in fiscal
1963.
Training allowances under the Area Redevelopment Act are equal to the
average weekly unemployment insurance benefits in a particular State.
During fiscal 1963, programs initiated under the act resulted in the payment
of $1,739,090 and involved some 9,450 trainees. Generally under the
Manpower Development and Training Act, allowances are geared to the
State unemployment benefit rates and may include subsistence and transportation
allowances where a trainee must leave his regular place of residence.
Subsistence payments during retraining fill a need which cannot be met in
most cases by the unemployment insurance system. In many States,
unemployment insurance benefits are denied to persons attending a fulltime
course of instruction, since trainees are not considered to be available
for work. Even where unemployment benefits may be paid during vocational
training, many potential trainees will have exhausted their right to
them before training is completed. Approximately zz,ooo workers approved
for training under the Manpower Development and Training Act
received allowances totaling $7,788,845 in fiscal year 1963.
Under the Trade Expansion Act of 1961, responsibilities of the Federal-
State UI system were expanded to include payment functions. The act
provides for payment of allowances to workers who are separated from
employment in industries determined by the U.S. Tariff Commission to have
been affected adversely by U.S. trade agreements with other nations.
Amendments to UI laws during the 1963 State legislative sessions ranged
from increases in the maximum weekly benefit amount and adjustments of
the taxable wage base and maximum tax rates to more effective financial
indicators and measures for reserve fund adequacy. There was a marked
tendency toward higher or more difficult qualifying requirements in terms
of increases in the required wages or weeks of work and more stringent
disqualifications which changed or reduced benefit entitlement for reasons
of separation from, or refusal of, work without good cause or receipt of
other income, such as old-age and survivors insurance or payments from
employers’ pension plans.
The Bureau in its role of adviser and the States as operators of the UI
program took the following actions, among others, to improve operations:
(1) Widening the scope and improving the planning and methodology of
UI research studies; (x) initiating improved procedures in the claim operations
and adjudication processes; (3) increasing the use of automatic data
processing systems; and (4) making general improvements in administrative
organization and management. The Federal Administration introduced
to the Congress proposals for improving the Federal-State UI program.
These and other developments affecting the unemployment insurance
program are described in the following sections.
84
State Benefit Financing
For the second successive year since 1957, yearend reserves increased—
$6.2. billion on June 30, 1963, compared with $5.8 billion the year before,
a rise of 6.9 percent. The higher reserve fund balance resulted primarily
from the recent trend toward higher tax rates and the rise in aggregate
taxable wages. Tax collections reached an alltime high of $3.0 billion in
fiscal 1963—10.9 percent above the level a year earlier. This increase resulted
not only from the provisions in State laws setting up higher tax
schedules to bring tax income to more adequate levels but also from legislation
in some States increasing tax rates. Benefit payments totaled $2.. 8
billion for each of fiscal years 1962. and 1963. As a net effect of all financial
transactions during the year—benefit payments, collections, interest earned
on reserve funds, and loan transactions—total revenues for the year ended
June 30, 1963, exceeded total disbursements by $398.8 million, as compared
with a net accretion of $59.7 million during the previous fiscal year.
Aggregate State unemployment insurance reserve funds at the end of
fiscal 1963 amounted to an estimated 5.0 percent of taxable wages, as compared
with 4.7 percent the year before. A common measure of fund adequacy
is provided by comparing reserves (expressed as a percent of total
wages) with the highest consecutive i2.-month UI benefit payments (also
expressed as a percent of total wages) experienced during the last 10-year
period. On this basis, aggregate unemployment insurance reserves on
June 30, 1963, representing 1.9 percent of total wages, amounted to 1.41
times the highest consecutive 11-month cost rate in the immediately
preceding 10 years, about the same ratio indicated at the end of the previous
year. A reserve level equal to at least 1% times the highest consecutive
i2.-month cost rate is considered as a minimum level of adequacy. Twentyfour
States had reserves of less than 1% times the high cost rate, and four
States had a multiple of 4.0 or more.
The temporary increase in the Federal tax to finance benefits under the
Temporary Extended Unemployment Compensation Act of 1961 was reduced
by the Congress for calendar year 1963 because TEUC costs were lower
than had been expected. The increase of 0.4 percent was reduced to o.X5
percent, making the overall Federal rate on 1963 wages 3.35 percent before
offset for State unemployment compensation taxes, instead of 3.5 percent.
The tax is payable by January 31, 1964.
The Federal unemployment account, built up and maintained from
available excess Federal tax collections over administrative expenses, is
the source of funds for non-interest-bearing advances to States with low
reserve funds. This account had a balance of $59.4 million on June 30,
1963. Prior to fiscal year i960, three States (Alaska, Michigan, and
Pennsylvania) had borrowed from the loan fund a total of $2.33,765,000.
By means of the automatic provisions of the law which increase Federal
85
unemployment taxes for employers in the States which have borrowed,
Alaska began repayment to the loan fund in fiscal year 1961; Michigan, in
fiscal year 1963. At the end of fiscal year 1963, Alaska, with a total indebtedness
of $8,765,000, had repaid $449,647; Michigan had repaid $7,153,713
of its $113 million advance.
State Legislation
There was substantially less activity in State unemployment insurance
legislation during fiscal year 1963 than in 1959 or 1961. The enactments—
other than those to increase the maximum weekly benefit amount—tended
to restrict the payment of benefits in one way or another, through higher
qualifying requirements and more stringent disqualifications or by reduction
of the weekly payment to individuals who also receive retirement payments.
No significant legislation affecting coverage of workers was enacted.
Legislation enacted in 18 States related to financing of unemployment
insurance with respect to the taxable wage base, maximum tax rates, and
reserve fund adequacy.
The most restrictive State bill to be enacted would impose a waiting
period of 7 to 13 weeks if the claimant had wages in his base period of
$6,000 to $9,000 or more. The amendment specified that it would not
become effective if, prior to January 8, 1964, the Secretary of Labor found
it to be out of conformity with Federal requirements.
Ten States increased the maximum weekly benefit by amounts ranging
from $1 to $7. Two of them provided for automatic adjustment of the
maximum weekly benefit in accordance with changes in average wages.
Increases in the maximum benefit also became effective in seven other
States that had previously adopted similar provisions for automatic adjustment
of the maximum. In reverse action, Wyoming reduced its maximum
benefit by setting it at a smaller percentage of average wages.
Formula changes were made in three States, all of which had previously
based the weekly benefit amount on high-quarter wages. Oregon adopted
an annual-wage formula, and Ohio and Vermont changed to a formula
based on average weekly wages—computed, in the latter State, on the
basis of the 2.0 weeks of highest earnings. Other significant changes included
repeal of the Wyoming dependents’ allowance provision and, in
Ohio and Wyoming, reduction of the weekly benefit amount payable to
interstate claimants.
At the end of fiscal year 1963, maximum basic weekly benefit amounts
ranged from $16 in Puerto Rico to $53 in Wisconsin and $55 in California
and Hawaii. Twenty-four States, with 57.1 percent of the covered workers,
had a maximum of $40 or more, and in six States, with 2.8.6 percent of the
covered workers, the maximum was $50 or more. Eleven States, with
13.9 percent of covered workers, still had a maximum benefit of less than
$35. (In States which provide dependents’ allowances, the “basic”
weekly benefit is the amount for a claimant with no dependents, as defined
by law.)
86
Maximum basic weekly benefit amount, June 30,1963
Percent of covered
workers (calendar
year 1962)
Percent
Cumulative
percent
Number
of States
$50-$55 _______ - --- _____- -------- 6 28.6 28.6
$45-$49 _________________ -- -- ---------- 10 9.6 38.2
$4Q-$44 ___________ ____ -- -- - 8 19.0 57.2
$35-$39 _____ ________________ - - - --- 17 28.9 86.1
$30-$34 ____________________________ - 10 13.3 99.4
Under $30__ _______________________________________________ 1 .6 100.0
52 100.0
In most States, the weekly benefit represented about one-half of the
weekly wage for those workers who qualified for less than the maximum
benefit amount. As shown in the following table, the small increases in
the maximum weekly benefits effected during 1963 did not keep pace with
increases in wages. In only 11 States, with 7.1 percent of the covered
workers, did the maximum benefit represent 50 percent or more of average
weekly wages. (Comparable figures the year before were ix States,
including California, with 17.3 percent of covered workers.) In calendar
year 1962., over half of the claimants in xx States were receiving the maximum
weekly benefit and, in 14 of these States, 60 percent or more received
the maximum benefit. Many of these workers were earning more than
double that amount when they were working.
Percent of covered
workers (calendar
Number year 1962)
of States
Percent Cumulative
percent
Maximum basic weekly benefit amount, June 30,1963, as a
percent of average weekly wages in calendar year 1962
04 _ __ _ ______ - - - ---- 1 0.4 0.4
50-54 ____ __________ _____ 10 6.7 7.1
45 49 _ _ _ _ _ ------ ---- 10 35.7 42.8
40 44 ___ _ _ _____ ____ - - - 14 27.9 70.7
35-39 _______________________ _______ 12 23.1 93.8
30-34 - -- _ _ _ _______ _ __ -------- 4 2.0 95.8
1 4.2 100.0
Total________________________________________________ 52 100.0 —
Higher or more difficult qualifying requirements were adopted in nine
States. Of these, two required a specified number of weeks of employment.
There were, however, no accompanying improvements in the duration of
benefits. Two States changed from uniform duration for all eligible
claimants to a formula providing benefits equal to a fraction of the claimant’s
base-period wages, up to a maximum of x6 weeks. Colorado reduced
its maximum weeks of benefits and the fraction for computing each individual’s
entitlement.
As shown in the following table, 10 States, with x6.o percent of the
covered workers, provided uniform duration. In the other States, which
87
varied the duration of benefits with a worker’s base-period wages, the
maximum duration ranged from xi to 39 weeks. Forty-eight States, with
96.3 percent of covered workers, provided a maximum potential duration
of 2.6 weeks or more.
Maximum duration in weeks Number
of States
Percent of covered
workers (calendar
year 1962)
Percent Cumulative
Uniform duration:
30_____________________________________________________
26____________________________________________________
12_____________________________________________________
Variable duration:
39_____________________________________________________
36_____________________________________________________
34________________________________________________
30____________________________________________________
28____________________________________________________
26____________________________________________________
24__________________________________________________
22_____________________________________________________
181
112
31
31
21
7.0
18.4
.6
.9
.5
2.9
5.6
1.3
59.7
2.0
7.0
25.4
26.0
26.9
27.4
30.3
35.9
37.2
96.9
98.9
100.0
Total________________________________________________ 52 100.0
Legislation enacted in nine States provided more restrictive disqualifications
for voluntary leaving without good cause, discharge for misconduct
connected with the work, or refusal of suitable work. The amendments in
Colorado substituted for the usual type of disqualification a system of
benefit awards varying with the circumstances of the claimant’s separation
from work. Following a trend established in recent years, two States
adopted provisions to reduce the weekly benefit payment by the prorated
amount of the claimant’s old-age insurance benefit or payment received
under an employer’s retirement plan. At the end of the fiscal year, 15
States provided for reduction of the unemployment benefit if the claimant
received old-age insurance, and 31 States, for receipt of payments under
employers’ pension plans.
Laws relating to the financing of unemployment insurance were enacted
in 18 States. Three States (Idaho, Michigan, and Vermont) increased the
amount of wages on which contributions are based to $3,600; one State
(Tennessee), to $3,300; and another (Utah) increased its tax base from
$3,000 to $4,2.00. Fourteen States at the end of the fiscal year had a tax
base above the $3,000 limit provided in the Federal Unemployment Tax Act.
Increases in maximum possible tax rates to provide greater equity in the
sharing of benefit costs were enacted in 10 States in 1963. These increases
brought to 33 the number of States providing rates above 2.-7 percent.
Twenty-two of the 33 States had a maximum rate of 4.0 percent or higher,
with the highest set at 7.2. percent.
Provision of graduated above-standard rates for employers with negative
balances tends to reduce inequities in the tax burden among employers by
requiring those with high cost experience (deficit account employers) to
pay a larger share of their benefit costs. Three States (Michigan, New
Hampshire, and New York) enacted such a provision.
88
Measures were enacted by Arkansas, Utah, and Vermont to use total
wage ratios (rather than taxable wage ratios) as indicators of reserve fund
adequacy, either for signaling the suspension of reduced rates or to effect
higher tax rate schedules.
Federal Legislation
Attention was focused on the Federal-State unemployment insurance
program as unemployment continued at a high level and workers experiencing
long-term unemployment rose in number. To fill gaps in the protection
afforded the unemployed and to make the program more responsive to
changes in the economy, the Administration proposed the following permanent
improvements: Providing a permanent program of Federal unemployment
adjustment benefits for the long-term unemployed with substantial
past employment; broadening coverage; strengthening the financing by
increasing the wage base to $5,zoo and providing equalization grants
to those States whose unemployment cost rate is above a specified amount;
increasing the weekly benefit amount under State unemployment insurance
laws up to a maximum which is to start for 1966 and 1967 at 50 percent
of State average weekly wages in covered employment, and to increase by
1970 to 66% percent of State average weekly wages; and not denying
benefits to an otherwise eligible individual when he is taking training
with the approval of the employment security agency.
Because long-term unemployment is a national problem, the Administration’s
proposals included a program of Federal unemployment adjustment
allowances for the long-term unemployed who have had long and substantial
attachment to the labor market. These benefits would be payable to
individuals who had been unemployed for at least z6 weeks, had exhausted
their State benefit rights, and had worked at least half of a specified 156-
week period preceding their benefit year. These benefits would be paid
over a 3-year period at the State weekly benefit amount for a potential
period of from 13 weeks, for a worker who just meets the qualifying requirements,
to z6 weeks, for a worker who had worked for two-thirds of
the 156-week period.
The Federal unemployment adjustment allowances and the equalization
grants to States would be financed by an increase of 0.3 percent in the Federal
unemployment tax.
Federal Programs
In connection with payment of allowances under the Area Redevelopment
Act and the Manpower Development and Training Act, the Bureau’s
Unemployment Insurance Service was concerned principally with proper
administration, with reviewing and improving operating procedures of the
50 State agencies, the District of Columbia, and Puerto Rico, and with
prevention of improper, duplicate, or excessive payments. Under the
Trade Expansion Act signed by the President on October n, 1961, the
89
Bureau is responsible for payment of adjustment allowances. A worker’s
eligibility for such allowances is based upon a substantial amount of
employment in a recent period and total or partial separation from employment
which has been determined by the U.S. Tariff Commission to have
been affected adversely by increased imports resulting from concessions
granted under trade agreements. Trade readjustment allowances are payable
for up to 51 weeks of unemployment at a weekly rate which is the
lesser of 65 percent of the worker’s average weekly wage during a specified
period, or the average weekly manufacturing wage as published by the
Bureau of Labor Statistics.
An additional 13 weeks may be payable to workers who are 60 or more
years of age when separated from adversely affected employment. Up to
2.6 additional weeks may be paid to an eligible worker to permit him to
complete training which began prior to his having received 52. weeks of
allowances or prior to the end of his benefit period. Transportation and
subsistence allowances are payable under the Trade Expansion Act to
workers adversely affected who are taking training provided by the Area
Redevelopment Act or the Manpower Development and Training Act at a
training facility which is not within commuting distance of the trainees’
homes. Relocation allowances are provided to cover the expense incurred
by an adversely affected worker in moving himself, his family, and household
effects to a location where he has obtained new employment.
State employment security agencies, acting as agents of the United
States under agreements with the Secretary of Labor, were made responsible
for processing claims and paying allowances, from Federal funds appropriated
by Congress, to workers eligible under the act. However, at the
end of fiscal year 1963, no funds had been appropriated for the payment of
such allowances.
Following passage of the Trade Expansion Act, the Bureau’s Unemployment
Insurance Service developed specifications for regulations and agreements;
issued operational procedures as a guide for State agencies; made
plans for training meetings for State agency staff members; and initiated
trade readjustment allowance notices to inform State agencies of industry,
firm, and worker petitions filed with the U.S. Tariff Commission and the
findings on petitions acted upon by the Commission. Up to June 30,1963,
the Commission had made no affirmative findings on petitions filed.
Research and Information
To make the unemployment insurance program more effective in lessening
hardships of unemployment, there was a recognized need in fiscal 1963 for
examining the way the program functioned, the impact it had on claimants,
and its role in the Nation’s economy. In response to this need, the number
and scope of UI research projects undertaken by the States were expanded
greatly. Coverage, benefit entitlement, and exhaustion experience were
among the principal areas investigated.
90
Interest continued in the employment, unemployment, and earnings
experience of agricultural workers. One State (Nebraska) completed its
survey findings during the 1963 fiscal year, and one more (Washington)
began planning to conduct such a survey. These studies, and the three
completed in fiscal year 1962. by Arizona, Connecticut, and New York, were
based on a methodology recommended by the Bureau.
Eight States (Alaska, Florida, Maryland, Mississippi, Missouri, Nevada,
New Hampshire, Vermont) and the District of Columbia studied benefit
entitlement to develop a factual basis for evaluating qualifying requirements
in State laws, and one State (Oklahoma) published the results of its
study. These studies involved the compilation, for samples of covered
workers, of a quarterly record of earnings in covered employment over a
3-year period. Analyses of the data in these studies will shed considerable
light on varying degrees of labor force attachment among workers and will
help in developing more adequate tests for insured status.
By the end of fiscal year 1963, seven States (Arizona, Florida, Massachusetts,
North Carolina, New Jersey, Pennsylvania, Washington) had established
continuous wage and benefit histories of workers and claimants.
This information was obtained as a byproduct of records already available.
Worker and claimant histories, which show individual employment patterns
by industry over several years, provide data for analyzing employment
and benefit experiences of workers.
In fiscal 1963, three States (Massachusetts, Minnesota, Wyoming) and
Puerto Rico studied the labor market experience of beneficiaries who had
exhausted their benefit rights. In addition to clarifying problems of the
long-term unemployed, these studies, based on a Bureau guide, will answer
many questions relating to extent of benefit duration. A number of States
developed plans for conducting studies in fiscal year 1964.
Other research completed or in process during fiscal year 1963 included
studies on the adequacy of the weekly benefit amount; successive benefityear
claimants, disqualifications, and nonmonetary determinations; and
temporary disability insurance.
The major research activity of the Bureau in fiscal year 1963 was the
task of tabulating, summarizing, analyzing, and publishing the data
collected in fiscal year 1961 on beneficiaries under the Temporary Extended
Unemployment Compensation Act. This study involved about -175,000
claimants throughout the Nation. In fiscal year 1963, the Bureau published
four more reports in the TEUC series “Family Characteristics of the Long-
Term Unemployed,” bringing to six the number published to date. The
reports indicated that the majority of TEUC beneficiaries had characteristics
similar to those of workers generally, were the main support for
themselves and their families, and were firmly attached to the labor force.
Workers classified in the study as secondary wage earners also demonstrated
a substantial employment history. The findings confirmed the need for
establishing the TEUC program to assist the long-term unemployed.
91
Plans were made for another report on TEUC exhaustees which would
combine the results of all four surveys with State and national data.
Besides the family characteristics study, 13 States continued with special
supplementary studies covering both TEUC and regular UI program claimants.
During the year, data were tabulated for studies to be published in
fiscal year 1964 of household adjustments and financial resources of TEUC
claimants during their unemployment; of the labor force status of TEUC
claimants 3 months after they had used up all of their benefits; and of
family characteristics, adjustments, and resources of regular UI program
claimants.
High levels of unemployment which prevailed in most States during the
last 5 years resulted in higher cost rates and focused attention on the need
for more adequate and related financial taxing provisions.
The following financing areas were those most frequently explored by
State agencies during fiscal 1963: (1) Estimation of levels of benefit costs
over a period of future years (availability of estimates of payout levels
is a first step in more realistic planning of the program’s tax income); (2.)
measures and indicators of reserve fund adequacy; (3) impact on taxes of
limitations on the taxable wage base and the maximum tax rate; (4) impact
on taxes of different experience rating techniques under varying economic
conditions; and (5) impact upon tax income of benefit costs that do not
enter into the rating process. (Costs in the case of item 5 include benefit
payments not charged to any employer and benefit payments charged to
employers who already are paying the maximum tax rate.)
To make research more helpful to the unemployment insurance program,
the Bureau encouraged State agencies to develop a continuous program
which would use their resources in an integrated fashion and would relate
research to all other areas of the unemployment insurance program.
Administration
In a long-range program to strengthen administration of the unemployment
insurance program, the Bureau worked with State agencies in the
following special areas: Improving organization, management, and supervision;
reducing tax delinquency; eliminating deficiencies in the claims
adjudication process; speeding up the benefit payment process and reducing
overpayment errors; and installing automatic data processing equipment
to reduce administration costs.
The separation of claim services and employment services in large
metropolitan areas made operationally feasible a direct line of authority
and responsibility from the top unemployment insurance executive in the
State agency to the local claims office. Thus, program-oriented management
techniques were installed which were not possible under joint claims
and employment operations.
In considering techniques for reducing tax delinquency, the Bureau and
State agencies agreed that field audits should be made of firms which, by
92
their past records, were most likely to become delinquent in the filing of
reports and the payment of taxes. The audits should not be based on a
random selection of firms.
Assistance was given the States in training personnel in better factfinding
and decision writing for the claims adjudication process. Cooperative
effort was also made to reduce the time lapse in holding appeals
hearings and in issuing decisions.
Because of the volume of claims and the many processes which enter
into making a benefit payment, there are inevitably some processing errors
and some checks issued in the wrong amount, thus requiring review and
correction. Techniques were developed, and will be tested, for using
machine processes. If these techniques are applied successfully, payments
will be expedited, many errors will be prevented, and claims personnel—
freed from most manual clerical functions—will have more time for concentrating
on claims interviews and determining eligibility for benefits.
Enormous quantities of data are collected, processed, and used in the
administration of the unemployment insurance program. Until recently,
use of electronic data processing equipment, because of its cost, was feasible
in only the large States. With the development of smaller, less costly
systems, 17 States have made installations, 7 of them in the past year.
Eight other States plan installations of such equipment in fiscal 1964, and
seven expect to increase the capacity of present systems. Many original
tabulating equipment installations, set up for purposes of processing tax
returns and claims, have been applied to other functions, such as fraud
detection, statistical analysis, and management analysis.
711-471—64- -7 93
Append ix table 1.—Selected employment service activities, U.S. totals for fiscal
years 1956-63, by State for fiscal year 1963
Year and State
New
applications
1
Total
counseling
interviews
Individuals
tested
Placements
Nonagricultural
Agricultural
1955-56 _______________________ 8,083,024 1,444 669 1,314,134 6 173, 684 9 248 459
1956-57 ________ ________________ 8^ 546' 028 1, 507, 825 1,448,607 5, 957,490 9 002’ 052
1957-58 _________________________ 10,412^ 879 1, 542,846 1,349, 924 5,235, 910 8 *709 763
1958-59 - ______________________ 9,368, 746 1,734,170 1,609, 536 5,703 458 9, 615’ 163
1959-60_____ ___________________ 9^ 598, 604 1,785, 541 1,760,754 6,082,753 9, 747’ 116
1960-61___________________________ 10, 605j 108 1, 783, 310 i; 799; 730 5, 591,089 9,004 319
1961-62 . ______________________ io; 413,532 2,020, 549 2,176, 709 6, 506,008 9,028 451
1962-63___________________________ IL 045' 696 2,088,332 2, 300; 436 6,632,252 7,923; 543
Alabama___ _____________________ ___ 148,759 20,418 38,379 116,874 72,755
Alaska_________ _________ __ _________ 18,000 3,466 8', 013 9, 906 281
Arizona_____________________________ 128, 000 18, 716 20; 782 112, 956 707 610
Arkansas____________________________ 155, 625 28,719 33; 461 106, 726 258,486
California___ ____ -__ ______________ 1,483j 561 203,465 22L 782 797,060 273 961
Colorado.. . ____ ___________ ___ ' 135^ 596 20; 107 30; 802 96; 765 88, 587
Connecticut_________ __________ —__ 180' 680 32,766 29; 438 100, 844 11,457
Delaware __ _ ____ ___________ - 18^254 4,273 3; 605 6; 992 7,302
District of Columbia______ ____ ___ 70, 904 19,244 21, 549 51,708 0
Florida______ ___ ___ _ ____ ___________ 245,452 31,496 53,815 252,309 131,465
Georgia__________ _______ ____ ____ ___ 195i 056 33,063 46; 523 153', 630 125,812
Guam__________ __ _ ______ ___ _ L 668 4 81 L 251 0
Hawaii.__ ____ _ ____ ___________ 4L 562 5,010 6,416 14, 361 2, 772
Idaho_______ ______ ___ ____ - - 53^ 988 10,178 10; 669 40; 381 130 923
Illinois______________ -__ _________ .. 429, 693 85,028 106; 133 211, 737 88,349
Indiana______ ______ _________ _ 269,678 35; 462 62,925 100; 683 52; 867
Iowa_______ _ ___ ____ ___________ . 102^ 281 19', 764 3i; 858 87; 773 31, 565
Kansas_________ _________________ 10L 839 23; 122 26,097 89; 567 17; 460
Kentucky____________ _____________ 152^ 967 3L 244 55; 651 67; 909 101,792
Louisiana__________________________ 144; 384 22', 805 3L 919 85; 782 243,773
Maine____________ _________ ______ 48' 483 13; 306 12; 123 23; 334 9,884
Maryland-_____ _________ _____ 166i 955 26; 957 2L 429 87; 912 116,093
Massachusetts____________________ . 326; 072 61', 901 45; 856 172; 754 48,460
Michigan____ _______________ _____ 615', 641 8L121 89; 015 174; 832 138,516
Minnesota_____________ __________ .. 190; 342 24; 590 52; 152 102; 968 45,009
Mississippi_______ ____ ____ __ ________ 140, 700 39; 000 4i; 278 108; 826 1,332, 731
Missouri_________ _____ __________ 239; 403 43; 619 5L 456 102; 724 ' 189; 740
Montana_____ . _________________ . _ 53; 637 19; 056 19; 655 35; 820 33', 213
Nebraska_______ ________________ 58; 295 17; 411 23, 645 63; 129 29; 044
Nevada____ ___ __ ________ _________ _ 42; 863 5, 589 8,393 36; 324 9; 071
New Hampshire_______ .. . .._______ 43', 604 9; 754 7, 966 1/ 397 4', 458
New Jersey___ ______ . ____ — 338; 735 46,443 39, 598 149,009 134,193
New Mexico.__ __ . .______ _ - 61', 894 12; 563 15; 427 49', 388 20', 629
New York__ __ _ ___________ ___ _ . 940; 232 210; 594 121,494 836; 877 125; 402
North Carolina_______________ __ ___ _ 237; 968 43; 213 66,138 157; 620 588; 953
North Dakota______ __________________ 30; 127 6; 122 13, 026 29; 745 18; 092
Ohio__________ ____________________ 612; 410 124,329 148,402 243,009 20L 247
Oklahoma________________ _________ J 3L 067 3L 461 38,918 160; 369 32; 588
Oregon___________ ____ — —____ _ 127; 679 34; 856 28; 120 78; 333 442; 991
Pennsylvania___ ___ ________________ _ 596; 869 182,026 115; 602 253, 582 270; 377
Puerto Rico____ _____ ________ _ . 152; 067 32,169 24; 400 45; 990 12; 885
Rhode Island____________ _ _________ 55,091 13,207 12,227 32; 537 '316
South Carolina______________________ 108; 802 Hi 580 33,656 87; 779 152,662
South Dakota__ ____ _____________ . .. 3i; 437 7; 490 9; 849 26,288 12; 808
Tennessee____________________________ 154; 297 28; 979 6i; 514 HL 605 669; 909
Texas_______ ________ _ ___ ___ ______ 721, 972 134', 354 13i; 146 502,480 57i; 391
Utah________________________________ 6L 641 1< 384 28; 941 5i; 395 28; 461
Vermont_______ ________ ____ — ____ 22,396 2, 441 4,026 15; 919 L468
Virginia_____ ________________ .____ 156; 801 41,368 45,294 108; 749 48,580
Virgin Islands____ ___ ____ _________ __ 2; 245 1,001 ' 545 L 450 9
Washington__- -___ __ ____________ 186; 803 38, 990 48,086 88,146 240,389
West Virginia____ ______ ____________ 8i; 890 22; 122 IL 362 44; 381 i 479
Wisconsin—__ ___________________ __ 206; 292 48,052 66,015 108', 186 34,654
Wyoming____________________________ 23; 039 3; 934 2; 784 15; 181 8; 624
1 The number of applications taken should not be interpreted as a measure of the total number of new
job applicants at employment service offices since there are some types of applicants for whom written
applications are not taken.
94
See footnotes at end of table.
Ap p e n d ix t a b l e 2.—Significant provisions in State unemployment insurance laws, June 30, 1963— Continued
88888888
gggggssg
-rtf' £
a
So a3
I
2 33-60
50
50B
$
3
88888888 —
>»bgjO
S
6
1£
96
CO 8.2
Is a Sal ■s 3
Ifl £.2M
tn 8
0S3 -3
co
.23? §fl §■•0
3<1
£8
tuO CO
Q-S3 fl es
2 « ■fl h
£.9-3.3
. 2.H”o
c5
£ U
© ,s
«.g
7s « fl fl
22 ®
^5
a S
§o-S'
CO  fl.
£ .
£ o
ak co
97
Ap p e n d ix t a b l e 3.— Claims, beneficiaries, amount, and duration of benefits under State programs, U.S. totals for fiscal years 1953-63,
by State for fiscal year 1963
[Note: Data for fiscal years 1955-59 include activities under the program of unemployment compensation for Federal employees and represent an unduplicated count for
SS.2
^EgSSWiS
Average actual
duration of benefits
Exhaustees
CQrHCOCS^-HCJii-HCQCOCilO
ssssjsgssss
COiOCOOHtN O Tfl O5CSJ o ow cw o co a Q o a 0d©C>Nb. 1>N
§^S§§g2S0g
£a§3SS88§88
^OOOt^rHOWrjaTcB"
98
S
3
99
Ap p e n d ix t a b l e 4.—Subject employers, covered employment, and selected unemployment insurance financial data under State programs,
U.S. totals for fiscal years 1953-63, by State for fiscal year 1963 1
State reserves for benefits
June 30, 1963»
Percent of
taxable
wages2
odQOQOt^OidiOT!?^
4.0
2.3
7.9
3.7
4.0
7.0
3.3
8.6
4.7
7.0
&8
4.8
8^3
5.9
7.6
6.3
sA
3.7
4.6
1.4
4.7
7.0
6.0
|S W OO <» 00 00I<OiOHCCOiOCD
oqr^cjc£>c£5iQc4coo4iogr-Hc©io»©>-icO’^o4iQi<’MHodo6iQ
Number
SiSSiSSSisgS
^^jo^ooof oocfcoco^gefco
1
Per 1,000
new spells
of insured
unemployment
2
CDiOHCDCOiOfNCOCCaOl
assssssssss ,*O-^-COC©Oir^r-4©IX©00<©C Tji" rH
Voluntary quit
Per 1,000
new spells
of insured
unemployment
2
t^Or- ©10XOOOX®Oq©NXNHHHH(N10H^^O©—< i i i i i i i i i i i
l I I -*-» ill c8 l l 1 l l l l l l 1 l
11 tIlI4 ^>O |I II I1 4O-» 1 ll1 l1 l1l 1 —1 ■ 1l 1l l1 l1 l1
। ii iii-f^ । । । । । ca iiiii i ii I iii | i i i i i 43 iiiii 11 1I I 1 O 1I1I1I- 4-3| 1| 1| I1 |1 1I 4o5 IIIIIIIIII
I 1 1 1 I I lllll 1 IIIII
i i'cj ii'S iiiii iiiii 1 II C III lllllrr-f lllll
: ; ; £ ; : ; g, i i i I i g : : : : :
-a ! ! t ! : : o S : : : : ® : i : i i 7 |i i J§r ii i Hi os i ■ iI i : i • r|>, ii :i i; iyi
s -s ! 3 a :g b a ! : i : $ a : '• :«
5 o : •§ I :S 3 5 : is 5 : : :S
W —4 »-< bi) -4-3 1 >-< 4-3 1 1 I w 4-3 1 j I „
t» g.2 ”37v § “ “ id I °
3 MO 2 g 3^0 g .SaliSS
Ps C3 a£ orj
9m r"1 Q m
1 1 1 1 1 1 1
1 1 1 1 1 1
1 1 1 1 1 1 1
1 1 1 1 1 1 1
1 1 1 1 1 1 1
1 1 1 1 1 1 1
1 1 1 1 1 1 1
1 1 1 1 1 1 1
1 1 1 1 1 1 1
1 1 1 1 1 1 1
1 1 1 1 1 1 1
1 1 1 1 1 1 1
1 1 1 1 1 1 1
1 1 1 1 1 1 1
. 1 1 1 1 1 1
1 1 1 1 1 1
C3 i i I i i i
O i i i i i i
| i i i i i i
TZ li i1 1i il 1i i1
g 1 l 1 l l 1 73 1 1 1 1 1 1
A 1 1 1 1 1 1 o 1 1 1 1 1 *
Q< iiiii,! —*
§385 rfrf
Ss
§
Bi
S2
1 F slsggasig
sgSs'ggW
5g»s-' “
11957, 1958,
and 1959
sissies
S383 -- -2 F
126
§§§§!
$68,134,584
i Bi
i
SgSSS
$63,995,330
i
Ssssi
sss--|
iz/, /oo
$62,175,949
B §1 J
l*is^
3SS2:
141, 60/
$59,930,539
§11
sgs-
............ — — —
$69,253,906
160
1,075
$61,645,318
SB
i
Civilian war benefits_________ _________ ____________ _____ ____ ______ ___ I Emergency relief acts_________________ _______ __________________________
Civil Air Patrol______________ _____ _____________ _____ _____ ___________
Reserve Officers Training Corps----------------------------------------------------------------
Maritime war risk______________________________________________________
Total_________________ ____ ____________ ____ __________ -............. ............
>unt charged establishments under Public Law 86-767; 74 Stat. 909 (thousands)—
ergency relief cases still active:
Nonfatal___________________________________________ _______ ____ _____
M
127
T a b l e 2.— Operations under the Longsorehmen’s and Harbor Workers1 Compensation Act, and extensions thereof, July 1, 1958, to
June 30, 1963
CO
c©
o T-4
§ §
109,997
co^co
114,657
iBSil
17,864,635
OJ
CD
Cr—i<
s 8
89,234
95,094
17,194,333
Fiscal year
CD
O
r-4
ss
8 3
1 88,193
96,154
33^°
£S2£2
16,675,551
o
CD
Ci r—<
S5 £
1 S0S‘Z8 1
91,915
16,956,258
Ci
1Q
r-4
ss
s
8“
8
89,392
§g§§§
£5?$,o ~-
94,300
8SIE5
>
JI,
KI
X. San Francisco_______
X. Nashville___________ XI. A tlanta4_______ ____ _
g
h
255
Appen dix table C.—Number of minors found employed in nonagricultural establishments
in violation of the child labor provisions of the Fair Labor Standards Act,
by region, State, and age of minor, fiscal year 1963
See footnote at end of table.
Region and State
Number of minors illegally
Total
employed
Under
16 years
of age
16-17 years
of age in
hazardous
occupations
All regions_____________________ ______ _______________ 110,348 5,584 4,764
I. Boston__ ___________ _ _ _______ ___________________ 545 176 369
Connecticut______________________________________ 53 3 50
Maine___________________________________________ 127 74 53
Massachusetts____________________________________ 231 50 181
New Hampshire___________________________________ 42 22 20
Rhode Island_____________________________________ 76 20 56
Vermont_________________________________________ 16 7 9
II. New York City___________________ ___________________ 981 486 495
New Jersey_______________________________________ 319 116 203
New York________________________________________ 662 370 292
III. Chambersburg_______________________________________ 694 329 365
Delaware_________________________________________ 6 1 5
District of Columbia_______________________________ 33 6 27
Maryland------------------------------------------------------------- 243 155 88
Pennsylvania_____________________________________ 412 167 245
IV. Birmingham_________________________________________ 773 425 348
Alabama_________________________________________ 201 103 98
Arkansas_________________________________________ 200 119 81
Louisiana________________________________________ 180 89 91
Mississippi_______________________________________ 192 114 78
V. Cleveland____________________________________________ 867 604 263
Michigan_________________________________________ 511 404 107
Ohio_____________________________________________ 1 356 1 200 156
VI. Chicago ____ __________________________________ 475 173 302
Illinois___________________________________________ 121 69 52
Indiana__________________________________________ 1 87 37 1 50
Minnesota________________________________________ 217 59 158
Wisconsin________________________________________ 50 8 42
VII. Kansas City__________________________________________ 878 576 302
Colorado_________________________________________ 107 58 49
Iowa . __________________________________________ 54 26 28
Kansas___________________________________________ 400 311 89
Missouri ___ ___ __ __ __________________________ 111 63 48
Nebraska_________________________________________ 123 62 61
North Dakota____________________________________ 3 1 2
South Dakota--------------------------------------------------------- 57 43 14
Wyoming________________________________________ 23 12 11
III. Dallas _____________________________________________ 1,884 1,228 656
New Mexico. --------------------------------------------------- 68 45 23
Oklahoma________________________________________ 323 191 132
Texas____________________________________________ 1,493 992 501
IX. San Francisco________________________________________ 1,410 783 627
Alaska __________________________________________ 3 0 3
Arizona--- ------------------------------------------------------------- 39 28 11
California ________________________________________ 735 418 317
Hawaii___________________________________________ 107 32 75
Idaho____________________________________________ 3 1 2
Montana_________________________________________ 16 5 11
Nevada__________________________________________ 30 24 6
Oregon___________________________________________ 40 16 24
Utah_____________________________________________ 344 210 134
Washington----------------------------------------------------------- 92 48 44
Guam____________________________________________ 1 1 0
256
Appendi x table C.—Number of minors found employed in nonagricultural establishments
in violation of the child labor provisions of the Fair Labor Standards Act,
by region, State, and age of minor, fiscal year 1963—Continued
1 Includes minors illegally employed under the provisions of both the Fair Labor Standards Act and the
Public Contracts Act as follows: All regions, 3; Ohio, 1; Indiana, 2.
Region and State
Number of minors illegally
employed
Total
Under
16 years
of age
16-17 years
of age in
hazardous
occupations
X. Nashville____________________________________________ 1,003 368 635
Kentucky________________________________________ 279 106 173
Tennessee--------------- ------------ ------------------------------ 282 129 153
Virginia---------------------------------------------------------------- 337 105 232
West Virginia_____________________________________ 105 28 77
XI. Atlanta _________________ __________ -____ _______ 687 350 337
Florida 248 139 109
Georgia__________________________________________ 348 183 165
South Carolina____________________________________ 91 28 63
Santurce, P.R __________ ______ _ - - - - - -_____ - - - 11 8 3
Puerto Rico____________________________________________ 10 7 3
Virgin Islands__________________________________________ 1 1 0
North Carolina_____________________________________________ 140 78 62
Appen dix table D.—Number of minors found employed on farms in violation of
the child labor provisions of the Fair Labor Standards Act, by region, State, and age
of minor, fiscal year 1963
See footnote at end of table.
Region and State
Number of minors illegally employed
Total
14-15
years
of age
10-13
years
of age
9 years
of age
and
under
All regions________________________________________
I. Boston________ ____ _____________________________
Maine___________ ____________________________
Massachusetts_________________________________
Vermont_____________________________________
II. New York City___________________________________
1 6,926 1,987 3,523 1,395
121 41 56 24
117
13
38
12
55
01
24
0
0
0 0 0 0
III. Chambersburg____________________________________
Maryland____________________________________
5 3 1 1
5 3 1 1
IV. Birmingham_____________________________________
Alabama_____________________________________
Arkansas_____________________________________
Louisiana_____________________________________
Mississippi___________________________________
V. Cleveland_______________________________________
Michigan_____________________________________
Ohio_________________________________________
VI. Chicago__________________________________________
Illinois_______________________________________
Indiana______________________________________
Minnesota____________________________________
Wisconsin____________________________________
11,502 408 826 264
1 512
1503
1 221
266
132
144
71
61
314
257
108
147
64
101
41
58
244 101 105 38
87
157
39
62
34
71
14
24
230 109 101 20
37
125
10
58
29
46
10
24
8
64
0
29
0
15
0
5
257
Append ix tab le D.—Number of minors found employed on farms in violation of
the child labor provisions of the Fair Labor Standards Act, by region, State, and age
of minor, fiscal year 1963—Continued
Region and State
Number of minors illegally employed
Total
14-15
years
of age
10-13
years
of age
9 years
of age
and
under
VII. Kansas City... .. ________________________________ 164 70 69 25
Colorado___________ ________________________ 72 40 24 8
Iowa___________________________ ____________ 5 0 5 0
Missouri. _ __ _ ______________________ _ _____ 68 22 32 14
North Dakota______________ ____________ _____ 19 8 8 3
VIII. Dallas____________________ . . .... 1 1,747 461 912 363
New Mexico_________ __________________ ______ 18 7 9 2
Oklahoma____ ________________ _ -________ 1 176 42 100 33
Texas______________________ _______________ 11,553 412 803 328
IX. San Francisco _______ ________________ ___________ 345 117 153 75
Arizona______________________________ _______ 21 12 7 2
California____________________________________ 140 47 60 33
Idaho____ ________ _______ __________________ 25 5 12 8
Oregon_______ ___ _______________ ____________ 44 9 22 13
Utah___ _ ___________________ ______ ______ 115 44 52 19
X. Nashville____________________ ___________________ 356 96 173 87
Kentucky_____________________ ____________ _ 18 6 10 2
Tennessee____ _______ _______________________ 295 77 145 73
Virginia___________ ____________ ___________ 43 13 18 12
XI. Atlanta________________________________ ________ 11,646 407 855 379
Florida_____ _ _____ ___ ____________________ 1257 88 126 42
Georgia_______ ______________________________ 1 764 182 406 173
South Carolina___ ____________________________ 1 625 137 323 164
Santurce, P.R_______________________________ __________ 1 53 22 25 5
Puerto Rico________________________________________ 1 53 22 25 5
North Carolina _______________________________________ 513 152 247 114
J Includes illegally employed minors for whom no age was reported: All regions, 21; Alabama, 2; Arkansas,
1; Louisiana, 1; Oklahoma, 1; Texas, 10; Florida, 1; Georgia, 3; South Carolina, 1; Puerto Rico, 1.
Appen dix table E.—Findings in regular and special safety and health inspections
made under the Public Contracts Act, by region and State, fiscal year 1963
See footnotes at end of table.
Region and State
Number of establishments
inspected
Establishments found
in violation of safety
and health provisions
All
States
By Federal
inspectors
By State
inspectors
By Federal
inspectors
By State
inspectors
United States_____________________ 1 4, 520 2,136 2,384 1,830 846
I. Boston___________________________ 363 42 321 36 72
Connecticut2_________________ 90 0 90 0 0
Maine_______________________ 20 8 12 6 0
Massachusetts2______ _________ 185 0 185 0 72
New Hampshire_______________ 20 20 0 17 0
Rhode Island 2_____ ____ ______ 34 0 34 0 0
Vermont______________________ 14 14 0 13 0
II. New York City_____ ____ _________ 814 6 808 5 341
New Jersey2.. ____ _________ 295 0 295 0 99
New York 2___ _______________ 519 6 513 5 242
258
Appendix table E.—Findings in regular and special safety and health inspections
made under the Public Contracts Act, by region and State, fiscal year 1963—Con.
Region and State
Number of establishments
inspected
Establishments found
in violation of safety
and health provisions
All
States
By Federal
inspectors
By State
inspectors
By Federal
inspectors
By State
inspectors
III. Chambersburg------------------------------ 524 117 407 106 8
Delaware__________________ - 5 5 0 4 0
District of Col rnn hi a . 35 2 33 2 3
Maryland____________ ___ . 93 93 0 84 0
Pennsylvania___________ _____ 391 17 374 16 5
IV. Birmingham_____________________ 216 199 17 178 3
Alabama____ ...______ ______ 98 98 0 79 0
Arkansas i 2________ ______ .. .. 17 0 17 0 3
Louisiana_______ ____ ____ _____ 59 59 0 58 0
Mississippi___________________ 42 42 0 41 0
V. Cleveland------------------------------------ 279 279 0 255 0
Michigan_________ .. _____ 125 125 0 116 0
Ohio..'.______________________ 154 154 0 139 0
VI. Chicago___________ ______________ 377 373 4 287 0
Illinois________ . ____________ 119 119 0 87 0
Indiana...____ ______ _______ 54 54 0 49 0
Minnesota____ ______ _______ 77 77 0 70 0
Wisconsin------------------------------- 127 123 4 81 0
VII. Kansas City______________________ 194 146 48 136 35
Colorado 2____ ____ _ ______ 33 2 31 2 23
Iowa__________ ____ __________ 29 29 0 25 0
Kansas2_________ ______ _____ 17 0 17 0 12
Missouri_________ __________ 93 93 0 89 0
Nebraska_____________________ 16 16 0 15 0
North Dakota_________________ 1 1 0 1 0
South Dakota_________________ 4 4 0 4 0
Wyoming-------------------------------- 1 1 0 0 0
VIII. Dallas___________________________ 354 349 5 320 4
New Mexico__________________ 27 27 0 25 0
Oklahoma____________________ 68 63 5 59 4
Texas________________________ 259 259 0 236 0
IX. San Francisco____________________ 778 154 624 126 351
Alaska_______________________ 5 5 0 5 0
Arizona______________________ 33 33 0 27 0
California2__ _______ _____ 557 1 556 1 321
Hawaii2____ _________________ 21 0 21 0 14
Idaho__________________ ______ 6 1 5 1 3
Montana________________ ____ 0 0 0 0 0
Nevada_____ _________________ 1 1 0 1 0
Oregon__________ _ _________ 54 54 0 43 0
Utah_________________________ 26 26 0 19 0
Washington___________________ 75 33 42 29 13
X. Nashville________________________ 248 148 100 142 8
Kentucky__ ___ ______ _______ 59 59 0 56 0
Tennessee_________ __________ 84 84 0 81 0
Virginia 2_____________ _______ 94 1 93 1 7
West Virginia-------------------------- 11 4 7 4 1
XI. Atlanta...______ _________________ 224 224 0 171 0
Florida______________ ___ _____ 102 102 0 83 0
Georgia______________________ 90 90 0 69 0
South Carolina------------------------- 32 32 0 19 0
Santurce, P.R__________________________ 17 17 0 16 0
North Carolina2____ .____ ____ ____ _____ 132 82 50 52 24
i Does not include 200 coal mine inspections made by the Federal Bureau of Mines pursuant to an agreement
with the Divisions. In addition, 2,597 inspections were made to determine compliance with corrections
required on first inspection.
2 Working arrangement with the State whereby State inspectors make inspections.
259
260
Append ix table G.—Minimum hourly wage rates recommended or in effect in
Puerto Rico as of June 30, 1962, and June 30, 1963
Industry and classification
Minimum hourly wage
rate
Effective date
jf latest rate
June 30, 1962 June 30,
1963
Alcoholic beverage and industrial alcohol:
General classification_________________________ _________ $1.15 $1.15 Nov. 3, 1961
New coverage classification--------------------------------------------- . 86,1.00 1.00 Dec. 7, 1962
Artificial flower, decoration, and party favor__________________ .70, .80^ .85 Oct. 5, 1962
Banking, insurance, and finance:
General classification__________________________________ 1.15 1.15 Nov. 3, 1961
New coverage classification-------------------------------------------- 1.00 1.00 Do.
Button, jewelry, and lapidary work:
Gem stone classification________________________________ 1.15 1.15 Nov. 3, 1961
Industrial jewel and precious jewelry classification---------------- 1.15 1.15 Do.
Button and buckle classification_______________ ___ ___ __ . 72J^ .74 Oct. 7, 1962
Hair accessories classification____________________ _ ___ .83 .88 Do.'
Hair ornaments classification------------------------------------------ .87^ .95 Do.
Metal expansion watch band classification------------------------- 1.00 1.00 Do.
Rosary and native jewelry classification---------------------------- .54 .56 Do.
Plastic costume jewelry classification-------------------------------- .72^ .77 Do.
General classification---------------------------------------------------- .77 .82 Do.
New coverage classification--------------------------------------------- .70 .77 Do.
Chemical, petroleum, and related products:
Agricultural chemicals, fertilizer mixing, hormones, antibiotics,
and adrenalin, petroleum refining, and pipeline coating tapes
classification______________________________________ 1.15 1.15 Nov. 3, 1961
Drugs, medicines, bay oil, aromatic alcohol, and toilet preparation
classification__________________________________ .88^ .95 Mar. 18,1963
Miscellaneous chemical and petroleum products classification.. 1.06,1.09 1.15 Do.
Oil well drilling classification------------------------------------------ 1.15 1.15 Dec. 5, 1961
New coverage classifications:
Bay oil and aromatic alcohol_________________________ .75 .95 Mar. 18,1963
General__ . _ __________________ _____________ . 70,1.00 1.00 Do.
Children’s dress and related products:
Hand-embroidery classification---------------------------------------- .68 .75 Jan. 7, 1963
Other operations classification___________________________ • 87^ ■ 92J4 Do.
New coverage classification--------------------------------------------- .70 1.00 Do.
Communications, utilities, and transportation:
Drivers, mechanics, and clerical workers in motor carrier
transport and express classification------------------------------ 1.15 1.15 Nov. 3,1961
Other workers in motor carrier transport and express classification_
_ ______________________________________ 1.03)4 1.07 Oct. 10,1962
Radio broadcasting classification-------------------------------------- 1.15 1.15 Nov. 3,1961
General classification___________________________________ 1.15 1.15 Do.
New coverage classification_____________________________ 1.00 1.00 Do.
Construction, business service, motion picture, and miscellaneous:
General classification___________________________________ 1.15 1.15 Nov. 3,1961
Janitorial service classification___________________________ 1.09 1.15 Nov. 19,1962
New coverage classification_____________________________ .70,-83,1.00 1.00 Do.
Corsets, brassieres, and allied garments:
General classification___________________________________ .99 1.04 Dec. 29,1962
New coverage classification_____________________________ .70 1.00 Do.
Electrical, instrument, and related products:
Classification A (shaver and hair dryer, storage battery,
drafting machine, electrical terminal and connector, television
antenna and lead-in cable, and portable hand tools).. 1.15 1.15 Nov. 3,1961
Classification B (electric irons, toaster elements, and hot
water heaters; exposure meters, ammeters, voltmeters,
accelerometers, and panel instruments; circuit breakers and
service entrance equipment; armatures and field coils;
switches and fluorescent starters; coils, including magneto
coils, and breakers; solenoids, relays, including telephonetype
relays, power-type relays and magnetic relay elements;
electric wave filters; gyroscopes and related equipment;
lighting fixtures and fluorescent lighting lamps (except light
bulbs and Christmas lighting sets); floor polishers; soldering
guns; electronic heating devices; electronic controls for
auto headlight dimmers; electronic data processing machines
and systems; soil moisture testing equipment; aircraft
test instruments; strain gauge transducers; photoelectric
cells; tape recorder heads and erase head assemblies;
electronic guns for television picture tubes; and the repair
and rewinding of electric motors and other electrical equipment)
_________ _________________________ 1.15 1.15 Do.
Classification C (capacitors, transistors, coils and coil forms,
hermetic seals, crystal units, rectifiers, electronic tubes, television
picture tubes, television sets, refrigerators, phonographic
pickup cartridges, electric baseboard heating units,
heating pads and massage pads, Christmas lighting sets,
thermometers, drafting instruments, surgical administration
sets, and watches)__________________________________ 1.15 1.15 Mar. 13,1962
261
Append ix tab le G.—Minimum hourly wage rates recommended or in effect in
Puerto Rico as of June 30, 1962, and Jnne 30, 1963—Continued
Industry and classification
Minimum hourly wage
rate
Effective date
of latest rate
June 30,1962 June 30,
1963
Electrical, instrument, and related products—Continued
Classification D (lenses)________________________________ $1.03^ $1.10 June 21,1963
Classification E (transformers, wire-wound resistors, and all
products and activities not specifically included in any other
classification)_____________________________ _ _____ 1.09 1.15 Do.
New coverage classification_____________________________ .70 1.00 Do.
Fabric and leather glove:
Hand-sewing on fabric gloves classification________________ .28 .28 June 2,1962
Aug. 3,1963
Do.
Hand-sewing on leather gloves classification_______________ .44 .46
Other operations on hand-sewn gloves classification_________ .65 .70
Machine operations on machine-~sewn leather gloves classification_______________
___________ _______________ ____ _ .88 .93 Do.
Machine operations on machine-sewn fabric gloves classification_____________________
_________________________ .90 .95 Do.
Other operations on machine-sewn gloves classification______ .84 .91 Do.
New coverage classification______ -_________________ ____ .70 .91 Do.
Fabricated plastic products:
Dinnerware, sprayer, and vaporizer classification___________ 1.15 1.15 Nov. 3,1961
June 21,1963
Do.
Do.
Phonograph record classification______________________ _ 1.10J-S
.92
1.15
Wall tile classification__________________________________ .96
General classification___________________________________ .85 .89
New coverage classification_____________________________ .70 .80 Do.
Food and related products:
Biscuit and cracker classification_________________________ 1.09 1.15 Apr. 12,1963
Canning and preserving classification__________________ _ .92 1.00 Do.
Citron brining and fruit, vegetable, nut, and green coffee
packing classification_________________________________ .74)4 .78 Do.
Yeast and canned tuna fish classification__________________ 1.15 1.15 Nov. 3,1961
General classification__________________________ ________ .97)4 1.02 Apr. 12,1963
New coverage classification A (soft drinks, rice, crackers,
pastry and cakes; frozen fish packing; bottling or canning of
olives, capers, and oils; ice cream chauffeurs; alimentarypastes
pressmen and helpers; master bread bakers, dough
mixers, dough-machine operators and bench hands; canning
and preserving of fruits, vegetables, and other food
products)______________________________________ .63,. 84,. 85,
. 92,. 98,1.00 1.00 Do.
New coverage classification B (milk and milk products; mixed
feed; and ice cream)___________________ ______________ . 66,. 75 .85 Do.
New coverage classification C (coffee roasting; other bread
workers; and other alimentary-pastes workers)___________ . 67,. 69 .80 Do.
New coverage classification D (general, including candy)____
Handkerchief, scarf, and art linen:
.57)4,-70 .75 Do.
Hand-sewing classification______________________________ .29 .30 Dec. 7,1962
Other operations classification_____ _____________________ .55 .56 Do.
Hand-sewing on oblong scarves classification_______________ .29 .71 Do.
Other operations on oblong scarves classification___________ .55 .87 Do.
New coverage classification_____________________________ .70 .71 Do.
Hosiery___________________________________________ ______ . 70,. 78 .78 Oct. 28,1962
Leather, leather goods, and related products:
Belt classification_ ____________________________________ .92 1.00 June 29,1963
Hide curing classification_______________________________ 1.09 1.15 Do.
Leather tanning and finishing classification________________ .73 .78 Do.
Sporting and athletic goods cFassification__________________ .75 .81 Do.
General classification________ __________________________ .69 .74 Do.
New coverage classification____________________ _________ .70 .74 Do.
Lumber and wood products:
Carpet grippers classification_________ __________________ 1.15 1.15 Nov. 3,1961
Furniture and miscellaneous wood products classification___ ■ 80)4 .86 Apr. 7,1963
Lumber, millwork, and balsa wood toys classification_______ .92 .97 Do.
Swimming pool equipment classification__________________ 1.03)4 1.0314 Nov. 3,1961
New coverage classifications:
Billiard table. ________________ - .. ______________ . 75,. 86,1.00 1.00 Apr. 7,1963
Table top and kitchen cabinet craft masters and supervisors___________________________________________
.75,-86,1.00
.70
1.00 Nov. 4,1961
General______________________ ___________________ .86 Apr. 7,1963
Men’s and boys’ clothing and related products:
Work clothing and separate trousers classification_________ .92 .97 Jan. 3,1963
General classification _ ________________________________ .86 .91 Do.
New coverage classification_____________________________ .70 .82)4 Do.
Metal, machinery, transportation equipment and allied products:
Fabricated wire products classification____________________ 1.15 1.15 Nov. 3,1961
Mar. 13,1962
Do.
Metal spring classification______________________________ 1.12 1.12
Slide fastener classification______________________________ 1.09 1.09
Wire drawing classification______________________________ 1.15 1.15 Do.
General classification. _________________________________ 1.15 1.15 Nov. 3,1961
New coverage classification__________________ ___________ .70 1.00 June 21,1963
262
Appendix table G.—'Minimum hourly wage rates recommended or in effect in
Puerto Rico as of June 30, 1963, and June 30, 1963—Continued
Industry and classification
Minimum hourly wage
rate
Effective date
)f latest rate
June 30,1962 June 30,
1963
Needlework and fabricated textile products:
Slacks and related products classification--------------------------- $0.94^ $1.00 Jan. 6,1963
Knit gloves and crocheted slippers classification------------------ .87^ . 95 Do.
Hand-crocheting and hand-embroidery of crocheted hats classification_______-----------------------------------------------------
.69 .75 Jan. 6,1963
Other operations on crocheted hats classification----------------- .94^ .98 Do.
Ge neral classification _ _________________________________ .95^ 1.03j^> Do.
New coverage classification_____________________________ .70 1.00 Do.
Paper, paper products, printing, and publishing:
Paper box and paper box partition classification------------------ 1.15 1.15 Nov. 3,1961
Pulp, paper, and paperboard, paper bag, daily newspaper and
news syndicate, photoengraving, filing cards and indexes,
fototype letters, paper for sanitary use, and commercial
printing by the silk screen process classification------------- 1.15 1.15 Nov. 3,1961
General classification------------------------ ------ ---------------------- 1.03JS 1.06 June 3,1963
New coverage classification_____________________________ .70 .78 Do.
Rubber products:
Tire recapping classification_____________________________ 1.06 1.15 Mar. 18,1963
Rubber footwear classification___________________________ .95^ .98 Do.
Rubber bucket classification------------------------------------------- .86 .93 Do.
Miscellaneous rubber products classification----------------------- 1.15 1.15 Nov. 3,1961
New coverage classification_____________________________ .70 1.00 Mar. 18,1963
Shoes and related products:
G eneral classification----------------------------------------------------- .71 .80 Do.
New coverage classification--------------------------------------------- .70 . 82^2 Do.
Stone, clay, glass, cement, and related products:
Abrasive products, cement, dry cement mixes, glass and glass
products, hot asphaltic plant mix, ready-mixed concrete,
concrete block and tile, concrete pipe, pre-cast concrete construction
components, structural clay products, and ceramic
floor and wall tile classification----------------------------------- 1.15 1.15 Nov. 3,1961
Art pottery classification------------------------------------------------ • 65H .72 June 3,1963
Artificial teeth classification_____________________________ 1.15 1.15 Nov. 3,1961
Asbestos cement products, high purity silicon, and crushed
stone, sand, and gravel classification---------------------------- 1.15 1.15 Dec. 15,1961
Mica classification-------------------------------------------------------- .83 .92^ June 3,1963
Vitreous and semi-vitreous china food utensils classification— .89^ .95 Do.
General classification___________________________________ 1.03^ 1.06 Do.
New coverage classifications:
Terrazzo and marble tiles------------------------------------------ .92 1.00 Do.
General___________________________________________ .70 .75 Do.
Straw, hair, and related products:
Artists’ brush and native handicraft products classification.— .55 .65 Nov. 2,1962
Hair and bristles processing and other straw, hair and related
products and new coverage classification---------------------- . 65^,. 70 .70 Do.
Hair piece and doll wig classification--------------------------------- • 80J3 • 80^i Do.
Sugar manufacturing:
General classification----------------------------------------------------- 1.09^ 1.12^ Dec. 7,1962
New coverage classification_____________________________ .70 1.00 Do.
Sweater and knit swimwear:
General classification----------------------------------------------------- 1.04 1.12 Do.
New coverage classification_____________________________ .70 1.00 Do.
Textile and textile products:
Mattress and pillow classification------------------------------------- 1.15 1.15 Nov. 3,1961
Bag cleaning and repairing classification---------------------------- .66 .70 Oct. 28,1962
Broad woven fabrics classification------------------------------------ .71^4 .73 Do.
Hooked rug classification:
Multiple-needle power-driven machine operations----- .83^ .88 Do.
Other operations------------------------------------------------------ . 64 .68 Do.
Yarn classification ______________________________ ______ .75 .79 Do.
.71^ .75 Do.
New coverage classifications:
Mattresses and bedsprings:
1.00 1.00 Nov. 4,1961
Skilled workers________________________________ .92 1.00 Oct. 28,1962
General ______________________________________ -- .70,. 75 .85 Do.
Tobacco: .40 .47^ Aug. 10,1963
.75 .80 Do.
.83 .85 Do.
General classification ________________________________ .99 1.00 Do.
New coverage classification------------ ------- ----------------------- .70 .70 Nov. 4,1961
263
Append ix tab le G.—Minimum hourly wage rates recommended, or in effect in
Puerto Rico as of June SO, 1962, and June 30, 1963—Continued
Industry and classification
Minimum hourly wage
rate
Effective date
of latest rate
June 30, 1962 June 30,
1963
Wholesaling, warehousing, and other distribution:
General classification._ _ ________________ _____ ____ $1.15
.65
.70
.70
.70
1.00
.70
.86
.70
$1.15
.78
.88
1.00
.75
1.00
.75
.92^
.75
Nov. 3,1961
Aug. 29,1963
Do.
Nov. 3,1963
Do.
Nov. 3,1961
Dec. 7,1962
Do.
Do.
New coverage classifications:
Janitors, messengers, and baggers in retailing___________
Other workers in retailing___________________________
Meat cutters ________ ________ ____ ____________
Gasoline service stations____________________________
Other new coverage ___ ________ _ ___ _ _______ __
Women’s and children’s underwear and women’s blouse:
Hand-sewing classification _________________________
Other operations classification_______ ______ __________
New coverage classification____ ___ ___ __ __ _-______ _
Appendi x tab le H.—Cumulative percentage distribution of covered employees in
Puerto Rico at wage order minimum rates in effect or recommended as of June 30,
1963
Minimum wage rate (cents
per hour)
Cumulative percentage
distribution
Minimum wage rate (cents
per hour)
Cumulative percentage
distribution
Old
coverage
New
coverage
Old
coverage
New
coverage
Less than 40.0________ _ 24
5
6
12
19
Less than 100.0-. _________ 33
38
51
64
100
38
Less than 50.0____ ______ 100.0 or less-.____ ________ 100
Less than 60.0. - _________ _ Less than 110.0-- _______ -
Less than 70.0________ _____ Less than 115.0____________
Less than 80.0___ ____ __ 6
38
115.0 or less__________ ____
Less than 90.0_____________
Appen dix tab le I.—Minimum hourly wage rates in effect in the Virgin Islands as
of June 30, 1963
Industry and classification
Minumum
hourly
wage rate
Effective date
Air transportation industry 1__________________________________________
Alcoholic beverage and industrial alcohol industry-------------------------------------
Banking, real estate, accounting, and insurance industry 1_________________
Bay rum and other toilet preparations industry__________________________
Communications and public utilities industry:
Custodial workers and brush cutters classification_____________________
General classification______________________________________________
Distribution, trucking, and construction industry:
Retailing classification____________________________________________
General classification______________________________________________
Jewelry, pen, thermometer, industrial belting, and miscellaneous metal proucts
industry_____________________________________________________
Assembling and manufacturing of clocks and watches---------------------------
Shipping, marine transportation, and ship and boat building industry 1---------
Seamen classification______________________________________________
Miscellaneous industry:
Textile classification______________________________________________
General classification______________________________________________
$1.15
.80
1.15
1.00
.90
1. 00
.72
.90
.75
.75
1.15
1.00
.65
.70
Nov. 3,1961
Nov. 10,1961
Nov. 3,1961
Nov. 10,1961
Do.
Do.
Do.
Nov. 3,1961
Do.
Nov. 10,1961
Nov. 3,1961
1 The minimum rate applicable to employees newly covered as a result of the Fair Labor Standards
Amendments of 1961 in these industries is $1.00 an hour. All other newly covered employees are subject
to the same minima as those shown for employees previously covered.
264
Appendi x tab le J.—Minimum hourly wage rates in effect in American Samoa
as of June 30, 1963
Industry and classification
Minimum
hourly
wage rate
Fish canning and processing industry.. $0.90
Shipping and transportation industry:
Seafaring classification__________ .50
Other activities classification____ .90
Industry and classification
Minimum
hourly
wage rate
Petroleum marketing industry______
Miscellaneous industries___________
$0. 90
.70
Appen dix table K.—Number and value of unclassified contracts subject to the
Public Contracts Act, by fiscal year, 1937-63
Fiscal year Number of Value (in
contracts 1 thousands)i 2
Fiscal year Number of Value (in
contracts 1 thousands)2
Total, all years------ 1,355, 749 $285,164,139
1937 (9 months)________ 3,223 177, 780
1938.'.______ 1_________ 5,158 294, 953
1939__________________ 6,396 528,393
1940__________________ 9; 324 799, 733
1941__________________ 24, 333 5,085, 694
1942__________________ 59, 536 15, 867, 769
1943... ______________ 101, 224 30,935, 632
1944__________________ 98,167 30, 216, 662
1945__________________ 135, 260 28,708, 335
1946__________________ 35, 366 5, 224, 234
1947__________________ 19; 303 1, 655, 595
1948__________________ 21, 413 2, 360,105
1949__________________ 27, 393 3, 606, 280
1950__________________ 22,349 $2, 784,325
1951__________________ 57,493 10, 422, 848
1952__________________ 65,475 10; 978; 395
1953_________________ 54, 210 10; 978, 817
1954__________________ 44,081 7, 932; 035
1955__________________ 33i 270 6; 383; 855
1956__________________ 30, 916 6; 051, 504
1957__________________ 53', 002 10; 67L 587
1958__________________ 50, 519 9, 270, 474
1959___ ___________ 73, 525 13, 452', 536
1960_________________ 64,339 li; 787; 570
1961__________________ 76; 254 16, 957; 694
1962__________________ 88, 715 20, 919, 824
1963__________________ 95,505 21,020, 501
i Includes contracts for which no value was reported on the notice of award; some of these contracts may
not be covered by the act.
2 For statistical purposes, the amount included for indefinite-amount contracting indicating only an upper
limit (e.g., “not to exceed $50,000”) is that limit; contracts for “more than $10,000” are coded $10,000; and no
value is included for those contracts reported as “indefinite” or for which no value is shown.
No te .—Amendments and supplemental awards to existing contracts are treated in the same manner as th e
original contract.
Appen dix table L.—Summary of minimum wage determinations applicable under
the Public Contracts Act, June 30, 1963
Industry and locality i
Minimum
hourly
wage rate
Effective
date2 Tolerances2
All industries and localities except those indicated
below
Battery:
Lead-acid storage battery branch_____________
Dry primary battery branch_________________
Other battery branch_______________________
Bituminous coal (including lignite):
District:
1—Eastern Pennsylvania_______________
2—Western Pennsylvania_______________
3—Northern West Virginia______________
4—Ohio______________________________
5—Michigan__________________________
6—Panhandle_________________________
7—Southern No. 1_____________________
8—Southern No. 2_____________________
9—West Kentucky_____________________
10—Illinois____________________________
11—Indiana____________________________
12—Iowa______________________________
13—Southeastern_______________________
14—Arkansas-Oklahoma_________________
15—Southwestern_______________________
16—Northern Colorado__________________
17—Southern Colorado__________________
18—New Mexico________________________
19—Wyoming____________ ____ _________
20—Utah______________________________
21—North Dakota-South Dakota_________
22—Montana__________________________
23—Washington________________________
$1.15 Sept. 25,1961 (<).
1.35
1.15
1.34
2.745
2. 745
2. 745
2.745
1.15
2. 745
2.745
2.745
2. 59
2.745
2.78
1.40
2.515
2.59
2. 59
2.796
2.796
2.796
2.82
2.82
2.226
2.846
2.735
May 27,1957
Sept. 25,1961
May 27,1957
Oct. 20,1958
___ do______
____do______
___ do______
Sept. 25,1961
Oct. 20,1958
____do______
____do______
____do______
____do______
___ do______
Nov. 25,1955
Oct. 20,1958
____do______
____do______
___ do______
____do______
___ do______
____do______
____do______
Nov. 25,1955
Oct. 20,1958
____do..........
(‘).
Beginners $1.15 for not
more than 3 months.
Auxiliary workers
$1.15, effective
Sept. 25, 1961.
See footnotes at end of table.
265
Appendi x tabl e L.—Summary of minimum wage determinations applicable under
the Public Contracts Act, June 30, 1963—Continued
Industry and locality 1
Minimum
hourly
wage rate
Effective
date2 Tolerances3
Chemical and related products:
Industrial and refined basic chemical products
branch:
Maryland, Virginia, North Carolina, South $1.15 Sept. 25,1961 (<).
Carolina, Tennessee, Arkansas, Mississippi,
Alabama, Georgia, Florida, and the
District of Columbia.
Other States___________________________ 1.15 Jan. 23,1951 (0.
Bone black, carbon black, and lamp black 1.40 ____do______ Beginners $1.35 for
branch.
Drugs and medicine____________________________
Electric lamp_________________________________
1.45 Feb. 21,1962
Apr. 12,1963
not more than 320
hours.
1.65
Electron tubes and related products:
Solid-state semiconductor devices branch___ 1.35 Jan. 7,1961
Electron tubes branch______________________
Electronic component parts_____________________
1.42
1.23 July 26,1961
Electronic equipment__________________________ 1.52 May 4,1963
Evaporated milk______________________________ 1.68 Jan. 15,1960 Probationary workers
Flour and related products______________________ 1.30 Mar. 5,1959
$1.63 for not more
than 160 hours.
Iron and steel:
Connecticut, Delaware, District of Columbia, 1.23 Aug. 27,1949 Auxiliary workers
Illinois (except the area in and about East St.
Louis), Indiana, Kentucky, Maine, Maryland,
Massachusetts, Michigan, New Hampshire,
New Jersey, New York, Ohio, Pennsylvania,
Rhode Island, Vermont, Wisconsin, West
Virginia, Arizona, California, Colorado, Idaho,
Montana, Nevada, New Mexico, Oregon,
Utah, Washington, Wyoming.
Illinois (East St. Louis area only), Iowa, Kansas, 1.19 ____do______
$1.18 H; apprentices
$1.18^ for first 6
months.
Auxiliary workers
Minnesota, Missouri, Nebraska, North Dakota,
South Dakota.
Alabama, Arkansas, Florida, Georgia, Louisiana, 1.15 Sept. 25,1961
$1.15.
Mississippi, North Carolina, Oklahoma, South
Carolina, Tennessee, Texas, Virginia.
Machine tools:
Blueprint machine operator or draftsman______ 1.65 May 23,1963
Other employees___________________________
Manifold business forms________________________
1.80
1.39 Sept. 16,1961
Metal business furniture and storage equipment____ 1.43 June 10,1961
Miscellaneous chemical products and preparations:
Product group 1 (specialty cleaning, polishing, 1.42 Dec. 4,1961
and sanitary preparations; surface active
agents, finishing agents and sulfonated oils
and assistants; and agricultural chemicals).
Product group 2 (adhesives, glues, mucilage, 1.80 ____do______
cements and sizes; gelatin, household tints,
dyes, and bleaches; bluings; writing inks; essential
oils; industrial compounds; automotive
chemicals; and evaporated salt).
Motors and generators:
Fractional horsepower branch________________ 1.48 Oct. 24,1962
Nonfractional horsepower branch ________ __ 1.73 ___ do____ _
Office, computing, and accounting machines_______ 1.55 Mar. 12,1962
Paint, varnish, and related products ____________ 1.50 July 24,1958 Probationary workers
Paper and paperboard containers and packaging
products:
Nontextile bags branch--------------------------------- 1.30 Feb. 3,1961
$1.40 for not more
than 480 hours.
In each branch, be-
Corrugated and solid fiber boxes branch----------- 1.53 ____do______ gmners or proba-
Sanitarv food containers branch . . 1.37 ___ do____ tionary workers may
Wrapping products branch---------------------------- 1.20 ____do______ be employed at 5
Paper and pulp:
Primary paper and pulp branch--------------------- 1. 75 Sept. 16,1961
cents an hour less
than applicable
minimum for not
more than 240 hours.
Rag paper and pulp branch.. 1.54 ___ do______
Converted sanitary paper products branch-------- 1.55 ____do______
Building paper and building board branch-------- 1.64 ___ do______
Photographic and blueprinting equipment and 1.52 June 10,1961
supplies.
Pumps and compressors------------------------------------- 1.65 June 11,1963
Scientific, industrial, and laboratory instruments:
Electrical indicating instrument and service test 1.35 June 28,1963
equipment branch.
Other products branch---------------------------------- 1.50 ____do-------- -
See footnotes at end of table.
266
Append ix table L.—Summary of minimum wage determinations applicable under
the Public Contracts Act, June 30, 1963—Continued
Industry and locality >
Minimum
hourly
wage rate
Effective
date2 1 Tolerances »
Small arms ammunition, explosives, and related
products:
Small arms ammunition branch---------------------- $1.15 Sept. 25,1961 (‘).
Explosives branch---------------------------------------- 1.20 Apr. 20,1952 Beginners (probationary
workers)
$1.15 for not more
than 320 hours.
Blasting and detonating caps branch--------------- 1.15 Sept. 25,1961 w.
Soap and related products---------------------------------- 1. 50 Dec. 8,1958
Surgical instruments and apparatus---------------------- 1.25 Sept. 1,1958 Beginners $1.15 for not
more than 320 hours.
Tires and related products______________________ 1.77 June 3,1960 Beginners (probationary
workers)
$1.67 for not more
than 160 hours.
Woolen and worsted:
Broad-woven goods, yarn, and thread branch
and pressed felt.
1.20 May 7,1954 (‘).
All other products branch------------------------------ 1.15 Sept. 25,1961 w.
1 Under existing policy, determinations are not enforced in Puerto Rico or the Virgin Islands.
2 Effective date applies to contracts subject to the Public Contracts Act, bids for which are solicited or
negotiations otherwise commenced on or after the date specified.
3 Handicapped workers and apprentices in any industry may be employed at wages lower than the
determination minimum pursuant to the certification standards and procedures prescribed in sections
50-201.1102 and 50-201.1103, respectively, of the general regulations under the Public Contracts Act.
< Learners may be employed at wages lower than the wage determination minimum if certificated in
accordance with the learner regulations (29 CFR Part 522) issued under the Fair Labor Standards Act.
Appendi x tab le M.—Number of minors found employed on farms in violation
of the child labor provisions of the Fair Labor Standards Act, by age and present
or last school grade attended, fiscal year 1963 1 1 2
Age
Present or last grade attended Below normal
grade for age
Total
all
grades 2
Never
attended
school
1 2 3 4 5 6 7 8 9 10 11 Number
Percent
of total
in age
interval
Total, all years.. 6,864 107 505 674 814 936 1,004 943 804 557 382 123 15 3,522 51
6 years_________ 149 44 91 14 0 0
7 years_________ 294 21 164 94 15 21 7
8 years..... .......... — 403 7 91 162 107 29 7 98 24
9 years_________ 535 3 59 147 160 130 34 2 209 39
10 years________ 775 5 58 115 189 192 174 40 2 367 47
11 years________ 794 2 21 56 143 183 184 174 30 1 405 51
12 years________ 995 3 11 38 93 181 244 213 170 39 3 570 57
13 years................. 945 4 1 23 57 99 167 192 220 146 36 543 57
14 years___ _____ 1,033 10 4 17 29 86 106 196 231 184 138 30 2 679 66
15 years_________ 941 8 5 8 21 36 88 126 151 187 205 93 13 630 67
1 Sixty-two illegally employed minors were omitted for the following reasons: (1) 23 for whom no school
information was available; (2) 21 for whom age was not reported; (3) 13 because they were too young to be
expected to have attended school; (4) 5 were in special ungraded classes.
2 The figures between heavy lines in the table Indicate normal school attainment for that age child. Based
on the usual standard of measurement, developed by the U.S. Office of Education, 6 to 7 is considered normal
attendance in the 1st grade, 7 to 8 for the 2nd grade, etc., with attendance of 1 grade each year.
267
Appen dix tab le N.—Number of nonlocal minors found employed on farms in
violation of the child labor provisions of the Fair Labor Standards Act, by age and
present or last school grade attended, fiscal year 1963 1
Age
Present or last grade attended Below normal
grade for age
Total
all
grades 2
Never
attended
school
1 2 3 4 5 6 7 8 9 10 11 Number
Percent
of total
in age
interval
Total, all years___ 2,271 67 221 293 332 359 364 296 192 97 40 9 1 1,656 73
6 years___________ 45 27 14 4 0 0
7 years....... ............. . 103 8 78 15 2 8 8
8 years.................... 128 5 48 57 13 5 53 41
9 years___________ 170 2 32 72 42 18 4 106 62
10 years..................... 251 3 24 68 85 42 24 5 180 71
11 years__________ 264 2 11 34 80 77 41 18 1 204 77
12 years__________ 347 1 7 19 55 95 93 49 23 5 270 78
13 years__________ 292 3 0 11 26 53 88 67 33 9 2 248 85
14 years__________ 355 8 4 9 14 45 57 92 81 36 8 I 0 1 310 87
15 years.................. 316 8 3 4 15 24 57 65 54 47 30 9 0 277 88
1 Twenty-two illegally employed minors were omitted for the following reasons: (1) 13 for whom no school
information was available; (2) 7 for whom age was not reported; (3) 2 because they were too young to be
expected to have attended school.
2 The figures between heavy lines in the table indicate normal school attainment for that age child. Based
on the usual standard of measurement, developed by the U.S. Office of Education, 6 to 7 is considered normal
attendance in the 1st grade, 7 to 8 for the 2d grade, etc., with attendance of 1 grade each year.
Not e .—Nonlocal minors are those who do not return to their permanent home each day.
Appen dix table O.—Number of minors found employed in violation of hazardous
occupations orders issued under the Fair Labor Standards Act, fiscal year 1963
Hazardous occupations orders violated
Total employed in violation of one or more hazardous occupations orders 1___________
Number of
minors
involved
5,959
Manufacturing or storage occupations involving explosives (order No. 1)_________________
Motor-vehicle driver and helper (order No. 2)________________________________________
Coal mine occupations (order No. 3)________________________________________________
Logging and sawmilling occupations (order No. 4)______________________ ____ _________ _
Power-driven woodworking machines occupations (order No. 5)_________________________
Occupations involving exposure to radioactive substances and to ionizing radiations (order
No. 6)________________________________________________________________________
Power-driven hoisting apparatus occupations (order No. 7)_____________________________
Power-driven metal-forming, punching, and shearing machines occupations (order No. 8)___
Occupations in mining, other than coal (order No. 9)__________________________________
Occupations involving slaughtering, meat packing or processing, or rendering (order No. 10)—
Power-driven bakery machines occupations (order No. 11)_____________________________
Power-driven paper-products machines (order No. 12)_________________________________
Occupations in the manufacture of brick, tile and kindred products (order No. 13)_________
Occupations involving the operation of circular saws, bandsaws and guillotine shears (order
No. 14)________________________________________________________________________
Occupations in wrecking, demolition and shipbreaking operations (order No. 15)__________
Occupations in roofing operations (order No. 16)______________________________________
Occupations in excavation operations (order No. 17)___________________________________
19
3,873
64
316
262
1,033
175
29
191
66
152
10
234
44
59
0
1 Represents an unduplicated count of the number of minors employed in violation of one or
more hazardous occupations orders.
268
APPENDIX II
CHILD LABOR STANDARDS
Fair Labor Standards Act
The child labor provisions of the Fair Labor Standards Act set a 16-year
minimum age for general employment, an 18-year minimum age for occupations
declared hazardous by the Secretary of Labor, and a 14-year minimum
age for employment outside school hours in a variety of nonmanufacturing
and nonmining occupations under specified hours and conditions.
A 16-year minimum applies to agricultural employment during the hours
school is in session in the school district in which the minor is living while
employed.
These provisions apply to employees engaged in interstate commerce or
in the production of goods for interstate commerce and to employment in
certain large enterprises engaged in interstate commerce or in the production
of goods for interstate commerce. They also apply to any producer, manufacturer,
or dealer who ships or delivers for shipment in interstate commerce
any goods produced in an establishment in or about which any
children have been employed in violation of the act within 30 days prior
to the removal of such goods.
Walsh-Healey Public Contracts Act
The Walsh-Healey Public Contracts Act sets a 16-year minimum age for
boys and an 18-year minimum age for girls who are employed in work performed
on certain contracts in excess of $10,000 for the manufacture or
supply of materials for the Federal Government.
Investigation Findings
With completion of the first full fiscal year of enforcement of the provisions
of the Fair Labor Standards Act as amended in 1961, it is possible to
assess the impact of these amendments in relation to the number of minors
disclosed by investigation to be employed contrary to the child labor provisions
of the act. As a result of the extension of coverage provided by the
1961 amendments, an increase in the number of available investigator hours,
a more intensive program of scheduling investigations, and other factors,
there were considerable increases in fiscal year 1963 in the number of minors
found illegally employed in nonagricultural establishments. Regional
increases over the previous year ranged from 7 to 145 percent, with the
additions resulting in many of the regions from investigations in retail and
service establishments.
711—471—64------- 18 269
In all, 17,174 minors were found working contrary to the child labor
provisions of the act, an increase of 6,834 over 1961. The 1963 total included
10,348 minors in nonagricultural establishments, 67 percent more than in
the previous year, and 6,92.6 children under 16 years of age employed in
agriculture during school hours.
More than 1,700 minors were found illegally employed in retail and service
establishments, or about 16 percent of those illegally employed in nonagricultural
establishments. In addition, 70 minors were found employed
contrary to the child labor provisions of the Walsh-Healey Public Contracts
Act.
Findings in Nonagricultural Establishments
Investigations disclosed violations in nonagricultural establishments in
each of the 50 States, the District of Columbia, and in Puerto Rico. (See
appendix table C.) The 10,348 minors found illegally employed included
135 minors 9 years old or younger and i,o6x minors whose ages ranged from
10 to 13. Approximately 4,400 children, or 41 percent, were minors 14
and 15 years of age employed in prohibited occupations. In addition, 4,764
minors aged 16 and 17, or 46 percent, were found illegally employed in
occupations declared hazardous by the Secretary of Labor.
Occupations of Minors Under 16
Where the Fair Labor Standards Act is applicable, the employment of
children under 14 years of age is prohibited. Despite this prohibition,
children under 14 were found illegally employed. Boys aged 8 and 13
and an 11-year-old girl were collating books in a printing plant. A 6-yearold
boy was operating a scrap paper baler and placing scrap paper on a
conveyor for a junk company. A produce warehouse employed boys aged
9, 10, 12., and 15 as warehouse laborers and two 13-year-olds as helpers on
trucks. Twenty-eight children from 5 to 15 years of age were found shelling
peas and beans on the 7 p.m. to 7 a.m. night shift for a produce company.
A beauty aids manufacturer employed minors aged 11, 13, and 14 to assemble
hair curlers. An 11-year-old warehouse worker stacked stale bakery goods
on a sales rack, swept the floor, and stacked cardboard boxes for shipment
for a wholesale bakery distributor.
In addition to the many young children found employed in prohibited
occupations, minors continued to be found working excessively long hours
in other nonagricultural occupations.
Twenty-two boys and girls ranging in age from 13 to 15 were employed
to assemble and package rubber and metal washers. They worked over 8
hours per day and over 40 hours per week, and often until 10:30 p.m. A
13-year-oJd boy was found to have worked a split shift between 9 a.m.
and 9 p.m. for 7 hours a day. A 14-year-old boy had worked 13 hours a
day, or a total of 78 hours a week, while another worked 10 hours a day
and as late as 10:30 p.m. A 15-year-old boy worked as many as ix hours
a day, and as many as 55 hours in a week.
270
Long hours of work often interfere with school work and adversely
affect the health of young workers. Moreover, the employment of boys
and girls who are too young to be aware of potential danger increases the
hazards of employment. These are the basic reasons underlying the regulations
issued by the Secretary of Labor which specify the number of hours
of work per day and per week and other conditions under which 14- and
15-year-old minors may be employed.
Child Labor Findings in Agriculture
Children may work in the fields regardless of their age, in any occupation,
and for any number of hours, provided the school in the school district
where they are living while so employed is not in session. Under
the Fair Labor Standards Act, a 16-year minimum age is applicable to
employment in agriculture only during the hours the school is in session
in the district where the minor lives and works. This provision does not
apply to children working for their parents.
During fiscal year 1963, 6,9x6 minors under 16 years of age were found
employed during school hours in violation of the Fair Labor Standards
Act on x,x77 farms in 33 States and in Puerto Rico. (See appendix table
D.) Of these, 4,633 were local children and 1,2.93 were migrants. Over
10 percent of the minors employed illegally in agriculture were 9 years of
age or younger. More than half the minors found were 10 to 13 years of
age, while 1,987, or 19 percent, were 14 and 15 years of age. Over 5,000
of the minors illegally employed during school hours worked in the cotton
fields. Other crops such as vegetables, field crops (other than cotton),
and fruits accounted for most of the remaining child labor violations.
Preschool age children were also working on farms. Their employment,
however, is not a violation of the act, since, of course, there are no school
hours for children below school age.
The educational level of children found illegally employed on farms is
graphically portrayed by information obtained on the last grade attended
at school. Of the 6,864 children who furnished information on the last
grade attended, 51 percent were in grades below the normal for their ages.
As might be expected, educational achievement in relation to age becomes
lower as the children increase in age. Thus, at 14 years of age, 66 percent
of the children employed in violation were enrolled in grades below the
normal for their ages, and at age 15 the percentage was 67. (See appendix
table M.)
Of the migrants found illegally employed, 67 children had never attended
school, and 73 percent were in grades below the normal. At 14 years of
age the percentage increased to 87 and, at age 15, 88 percent were behind
in scholastic attainment. These high percentages are even more serious
when one considers that the standard of measurement indicates that ages
6 and 7 are normal for the first grade, 7 and 8 for the second grade, and
so on. (See appendix table N.)
271
Low educational achievements of migrants may be related to deficiencies
in school attendance laws, crop vacations, inadequate school facilities,
and language barriers. School laws in some States are not applicable to
migrant children, and in other States the laws permit school officials to
dismiss classes while local crops are being harvested. Since migratory
families follow the crops, they often move from one place to another where
school has been dismissed for the harvest. In such cases, the migrant
children have little or no opportunity for schooling. Even where school
is in session and the migrant children are required to attend and do so,
they are at a disadvantage. Quite often the school is not equipped to
handle an influx of students, and school officials hesitate to enlarge their
facilities because the migrants’ stay in the community may be of short
duration. Also, where migrant children attend school there are problems
of frequent adjustment to a new school environment as they move from
place to place. Many migrant children have a limited command of the
English language and often do not attend school because bilingual teachers
are not available.
That employment in agriculture can be dangerous is pointed up by the
following accidents:
A 14-year-old minor was electrocuted while loading cotton on a truck
with a mechanical shaker.
A 14-year-old minor was killed helping to harvest corn when he fell
off a wagon and was run over by a truck.
A 15-year-old minor was killed when the tractor he was operating
overturned and crushed him.
Minors Working in Hazardous Occupations
Almost 6,000 minors under 18 years of age were found employed in
violation of one or more of the 17 hazardous occupations orders issued
by the Secretary of Labor. About 65 percent, or 3,873, of these minors
were illegally employed as motor vehicle drivers or helpers in violation
of Hazardous Occupations Order No. z. Hazardous Occupations Order
No. 7, applying to the operation of elevators, cranes, derricks, and other
power-driven hoisting devices, accounted for 1,033, or 17 percent. There
were 316 minors found employed in logging and sawmilling operations,
which are prohibited by Hazardous Occupations Order No. 4. The operation
of power-driven woodworking machines, covered by Hazardous
Occupations Order No. 5, resulted in z6z violations, while 2.34 minors
were found operating circular saws, bandsaws, and guillotine shears, contrary
to Hazardous Occupations Order No. 14. (See appendix table O.)
In those occupations or industries found and declared hazardous by the
Secretary of Labor, an 18-year minimum age applies. These orders are
issued only after careful research and consultation with experts and other
interested groups and individuals in order to determine the dangers involved,
the frequency of accidents, and their severity.
272
Working in hazardous occupations has involved minors in accidents
which resulted in serious injury or death. A 17-year-old boy working in
a mine was killed while shoveling coal, and his young companion was
injured when a mine car of coal was dumped into a truck mine tipple.
In a drilling operation, a 16-year-old boy was injured when he was
struck by the breakout gongs on the drilling rig with which he was
working. Serious injuries were sustained to his side, back, and head.
While loading a log onto the logging truck which he drove, a 15-year-old
minor was injured when the log fell, breaking the boy’s foot.
A 17-year-old freight elevator operator suffered a skull fracture when he
fell into an open elevator shaft while backing a four-wheel hand truck onto
the elevator.
A 16-year-old boy was killed while driving a pickup truck. The truck
lost a right wheel on a turn, throwing the boy out into the path of the truck
which ran over him. In another accident, a minor under 18 employed as a
truck driver was killed when his truck overturned.
A 13-year-old, employed as a woodcutter, was injured when the chain saw
he was operating slipped and cut him on the right side of his neck and chest,
requiring an emergency operation and extensive stitching.
A 16-year-old boy, employed as a debarker operator by a lumber company,
lost two toes and part of his right foot when his foot was caught in a chain
and sprocket of the feed conveyor of the debarker machine.
Employment and Age Certificates
Employers may protect themselves from unintentional violation of the
child labor provisions of the Fair Labor Standards Act if they have on file
an employment or age certificate showing the young worker to be the minimum
age for the occupation in which he is employed.
State employment and age certificates are issued in 45 States, the District
of Columbia, and Puerto Rico. During the 1961 calendar year approximately
one million employment and age certificates were issued by the
States. This was nearly a xo percent increase over the number issued in
1961. These State employment and age certificates are accepted as proof
of age under the Federal act.
In five States, the State law makes no provision for the issuance of employment
and age certificates. In four of these States—Idaho, Mississippi,
South Carolina, and Texas—the Divisions issue Federal certificates of age.
In Alaska, available evidence of age has been given the same force and effect
as Federal certificates of age. During the fiscal year, the Divisions issued
14,3x0 Federal certificates of age, a slight decrease over the number issued
in 196X.
Participation in Youth Programs
The Divisions continued their representation on the Interdepartmental
Committee on Children and Youth, including active participation on two
273
subcommittees—Transition from School to Work, and Families and
Children of Agricultural Migrants. Program emphasis for the year included
an assessment of some of the rapid changes in national life and the
impact of these changes upon youth. A special project in response to the
request of a congressional committee was the updating of the reference
directory, “Programs of the Federal Government Affecting Children and
Youth.”
Two work projects were undertaken and completed by the Subcommittee
on Transition from School to Work. One was the updating of an earlier
publication, “Helping Rural Youth Choose Careers,” which will be used at
the National Conference on Rural Youth being held in Oklahoma in the fall.
The second was the preparation of a new visual-type pamphlet showing all
Federal agency youth programs, and where individuals or committees can
reach local, State, or regional personnel and the location of the national
headquarters of each agency. The document—‘ ‘ Aids to Local Planning for
Occupational Choice, Preparation and Youth Employment”—tells what
services are available under the various Federal programs for youth, and
where people can get additional information.
Information Activities
Popular informational material as well as several technical documents
were reviewed and revised, and news releases were issued to the press announcing
official actions.
Regional and field office representatives spoke before many professional,
business and civic groups, and farm organizations on the child labor requirements
of the Fair Labor Standards Act. They also worked in close
cooperation with local schools as well as with State, county, and city
officials, in response to requests for information on the child labor
provisions.
Much educational work was accomplished through contacts with Farm
Placement Bureau officials who gave migrant workers various materials on
the application of the child labor provisions to agricultural employment.
Child Labor Bulletin No. 101 and the pamphlet ‘‘ What Crew Leaders Should
Know,” in Spanish as well as English, were distributed in the two major
migrant centers, Florida and Texas.
Press releases and radio-TV spot announcements were prepared as part of
information programs for the fall, winter, and spring seasons to keep
potential employers and young workers apprised of the child labor provisions
which would affect them. The fall information program also
emphasized the importance of returning to school.
274


OFFICE OF WELFARE AND PENSION PLANS1
Fiscal year 1963 was the first full year of administration of the amended
Welfare and Pension Plans Disclosure Act, which strengthened the original
disclosure law and which gave to the Secretary investigative and enforcement
powers and the authority to issue regulations. Fidelity bonding
is required of persons in a position to cause a loss through fraud or dishonesty
to funds or other property of employee benefit plans subject to
the act.
Embezzlement, false reporting, and kickbacks in connection with plans
subject to the act were made criminal offenses under title 18 of the U.S.
Code. In July 1961, the Secretary of Labor and the Attorney General
announced an agreement setting out their respective responsibilities in
investigating and prosecuting these offenses and other violations of the
amended act. During the year, the Office of Welfare and Pension Plans
referred 2.6 matters involving possible criminal violations to the Department
of Justice.
The amended act established an Advisory Council on Employee Welfare
and Pension Benefit Plans, which met six times during the year. The first
few meetings were devoted mainly to the proposed bonding regulations and
to an analysis of the comments received by the Department in reaction to
the publication of the proposed regulations in the Federal Register. In
later meetings, the council considered proposals for the revision of reporting
forms and miscellaneous matters.
Most of the Department’s functions under the law during the fiscal year
were performed by the Office of Welfare and Pension Plans, which had been
established by the Secretary following the 1961 amendments.
The most urgent problem at the beginning of the fiscal year was the
issuance of regulations which would guide plan administrators in applying
the bonding provisions. On September 1, after bonding problems had been
fully explored with the Advisory Council, the Department promulgated a
proposed basic regulation. Interested organizations and persons were
invited to comment. About 50 formal comments were filed and discussed
with the Advisory Council. Final regulations were issued November 30,
196X5 effective January 1, 1963 (2.9 Code of Federal Regulations Part 1306).
Also promulgated were regulations relating to procedures for obtaining
exemptions from the bonding requirements of the act (19 CFR Part 1307)
and an interpretative bulletin on prohibitions against bonding by parties
of interest” in the plan (19 CFR Part 1309).
* On August 21, 1963, functions of the Office were transferred to the Office of Labor-Management and
Welfare-Pension Reports in the newly established Labor-Management Services Administration.
277
The act requires administrators, officers, and employees who handle
welfare and pension funds to be bonded for io percent of the funds handled
up to a maximum bond amount of $500,000, but it also provides that the
Secretary of Labor may prescribe amounts in excess of $500,000. A public
hearing was conducted to obtain information and opinions from interested
parties as to the need for implementing this provision and possible methods
of doing so. Thereafter, it was determined that there was no need then
for adoption of any regulations of general application prescribing bonds in
excess of $500,000 for any single plan.
With regard to the reporting requirements, a regulation was issued providing
a i-page form to be used by plans that have fewer than 100 participants
to notify the Department that they do not need to file an annual
financial report (19 CFR Part 1304). A variation from the publication
requirements of the act was promulgated with respect to certain plans
utilizing Blue Cross-Blue Shield organizations (19 CFR Part 132.0).
Through replies to individual inquiries, the dissemination of printed
materials, and a direct-contact educational campaign consisting of a series
of meetings held in major cities throughout the United States, OWPP
attempted to help plan administrators and insurance companies to comply
fully with the law. By the end of June, more than 6,000 persons had attended
discussion clinics in 17 cities. The insurance industry and employer
groups were the most heavily represented, with substantial participation
by labor union officials, corporate trust officers, attorneys, accountants,
and pension plan specialists. The program concentrated on the coverage
of the act and on the reporting and bonding requirements. Time was
allotted at each clinic for the consideration of individual problems. During
the year, 5,000 copies of the act were printed in Spanish. An initial
distribution was made in Puerto Rico.
As in the past, OWPP continued to receive, process, and make available
for public examination the plan descriptions, amendments, and annual
reports filed in accordance with the law.
During fiscal 1963, OWPP received about 11,000 new plan descriptions,
13,000 amendments, and 81,000 annual reports. By the end of the year, it
had received a grand total of 185,000 plan descriptions, 111,000 amendments,
and 498,000 annual reports.
Visitors to the Department’s Public Document Room numbered 1,340.
They examined a total of 34,430 reports (two-thirds of which were annual
reports), an increase of 5,730 over 1961.
The number of reports duplicated for sale also rose. Cash receipts for
the year were $7,593, as compared with a total of $11,686 for the 4 preceding
years. Over 30,000 pages of reports were reproduced. Statistics relating
to the reports-processing, inquiries, and disclosure activities of the OWPP
are presented in the following table 1.
Under the Secretary’s new enforcement powers, OWPP opened cases on
489 plans involving a total of 631 possible violations, most of which con-
278
cerned failure to file annual reports. Of the 304 alleged violations disposed
of, voluntary compliance was obtained in 19X instances. In the other nx
instances, the plan was not covered or had been terminated, it was disclosed,
or no violation was found. In handling these cases, OWPP utilized the
field resources of the Bureau of Labor-Management Reports as needed.
In two instances, the Secretary of Labor filed civil complaints in the U.S.
courts asking that plan administrators be required to' file overdue annual
reports. These cases involved employers in Maine and Pennsylvania.
Many costly investigations and possible civil actions have been avoided
by means of the extensive correspondence devoted to requesting the submission
of overdue annual reports. More than 17,000 such letters were
sent out in 1963, effecting compliance in 60 percent of the cases.
In February, a set of tabulations entitled “Welfare and Pension Plans —
Statistics—1960“ was released, covering 1959 financial data for 118,660
plans and i960 data for 1x0,510 plans. *nTihnee tables in the study give
details on the value and type of assets, the amount of contributions by
employers and by employees, the amount of benefits paid, and distribution
of plans by method of providing benefits, by industry divisions, and by
number of employees covered. Similar compilations will be prepared for
1961 and 196X data. Some of the i960 data are presented in tables x, 3, and
4 appended hereto.
279
Table 1.—Status report, June 30, 1963
Activity
Jan. 1, 1959,
to
June 30,1963
Fiscal
year
1963
Preparation of replies to substantive inquiries:
Total number received ____________________ ___ ___ -______ 47, 490 9,970
Mail ____________________________________________________ 29,600
16,750
1,140
5,740
4,080
160
Phone __________ _________________ - - -____
Visitor ______________________ _____ - -- -- -- __ - --
Total number answered _______________ _ _ _ _ _ ___ _ - 47,370 10,890
Mail ______________________ _______________________ 25, 530
16, 750
1,140
3,950
5,370
4,080
160
1,280
Phone ______________ ___ -- - -- - -__ __ - - -
Visitor ________________ - --- -- __ --
Other disposition_ ___________ _ __ - __ __ ___ --
Public Disclosure Room:
Number of visitors _ _ _ _ _ __ _ _ __ 4,370 1,340
Number of reports examined:
Total _ ______________ _____ __ _ __ -------- - 99,630 34,430
Plan descriptions ______________ _ _ _ ___ __ - -- 37,390
62,240
10,870
Annual reports ______________ _ _ _ _ ____ _ _ _ 23,570
Furnishing copies of filings on reimbursable cost basis:
Number of pages __________________ -_ ____ 98,750
9,100
30,180
Number of filings utilized _________________ _ __ _ 2,860
Receiving filings:
Plan descriptions:
Number received _ ________ _______________ _______ 174,460
174,240
173,490
88,830
110,670
110,670
108,430
119,610
119,530
117,730
111,490
111, 400
66,280
70,020
69,890
15,260
4, 520
11,150
11,310
13,490
23,010
600
600
0
2,970
2,900
39,570
11,540
11,560
66,280
62,630
63,700
15,260
4,520
Number identified and available for disclosure. _ _ __ _ _
Number examined and tabulated_____________ __ _ _ _
Amended plan description filings____ ____________ -_____ __ --
Annual reports:
1959—First round:
Number received ____ _______________ ____ _________
Number identified and available for disclosure__ _____
Number examined and tabulated __________ __ ____ ______
I960—Second round:
Number received __ _ _ _ ___ ___ __ __ _ _
Number identified and available for disclosure _ _ _ _ _ __
Number examined and tabulated __________ ___________ -___
1961—Third round:
Number received _ ____________ _ ___ _ -
Number identified and available for disclosure- __ _ ____
Number examined and tabulated _________ _____ ________
1962—Fourth round:
Number received _ ________ ___ __ __ ______
Number identified and available for disclosure ___ ______ ____
Number examined and tabulated___________________ -_ _____
1963—Fifth round:
Number received_____________ __ _ _ _________
Correspondence (other than substantive):
Total number of letters ___________ . - - ____ - - - 165,720 43,040
Re overdue plan description _______ ______ _ ______ ____ ____ 2,100
20,390
60,440
1,080
81,710
0
390
17,460
180
25,010
Re deficiency in plan description____ ___ ___
Re overdue annual report- _______ _ _____ ______ ___
Re deficiency in annual report _________ - -______ ___
Other _ ___ ________ - ____- ______ ___ _ -
Overall mailhandling:
Total pieces handled__ ______ _ __ - ________ - ________ ____ 2,054,490 485,320
Number received _____ ________ _______ ____ ___ ___________ 771,210
1,283,280
161,790
Number mailed ___________ _ _____ -_ - _____________ 323,530
280
[Money amounts, millions of dollars]
Table 2.—Selected financial data for 120,510 welfare and pension benefit
plans, 1960 1
Item
Amounts Percentage distribution
Total—
all plans
Welfare
plans
Pension
plans 2
Total—
all plans
Welfare
plans
Pension
plans
Number of plans_____________________ 120,510 95,980 24,530
Contributions—Total_________________ $11,134.7 $5,342.7 $5,792.0 100.0 100.0 100.0
Source of contributions:
By employers_________ ____ 8,628.7 3, 801.5 4,827.2 77.5 71.2 83.3
By employees___ __ ____ 2,505. 9 1. 541.2 964.7 22.5 28.8 16.7
Type of plan contributed to:
Insured plan_____ _ _____ _ 5,133. 8 4,097.7 1,036.1 46.1 76.7 17.9
Self-insured plan_____ ___ _____ 3,850.5 405.0 3,445. 5 34.6 7.6 59.5
Insured and self-insured _______ 1,118.9 244.5 874.4 10.0 4.6 15.1
Unfunded plan______ ___ ____ 533.8 449.5 84.3 4.8 8.4 1.5
Combination of above_ ________ 497.8 146.1 351.7 4.5 2.7 6.1
Industrial activity of contributor:
Manufacturing______ __ 6,155.1 3,152.6 3,002.5 55.3 59.0 51.8
Mining. _____________ ______ 323.2 80.8 242.4 2.9 1.5 4.2
Construction____________ _____ 363.2 233.3 129.9 3.3 4.4 2.2
Transportation_______ _____ 868.1 440.5 427.6 7.8 8.2 7.4
Communication and utilities____ 870.9 322.7 548.2 7.8 6.0 9.5
Wholesale and retail trade______ 837.1 449.0 388.1 7.5 8.4 6.7
Finance, insurance, real estate___ 872.7 282.1 590.6 7.8 5.3 10.2
Services________________ ______ 481.1 240.4 240.7 4.3 4.5 4.2
Other and unclassified_________ 363.3 141.3 222.0 3.3 2.6 3.8
Benefits paid—Total__________________ 7,006.3 4,572. 5 2,433.8 100.0 100.0 100.0
Insured plans__________ ________ 3,779.3 3,434.7 344.6 53.9 75.1 14.2
Self-insured plans_______________ __ 1,779.4 279.2 1,500.2 25.4 6.1 61.6
Insured and self-insured__ _ ___- 584.2 250.9 333.3 8.3 5.5 13.7
Unfunded plans___________ ____ 533.8 449.5 84.3 7.6 9.8 3.5
Combination of above_____________ 329.6 158.2 171.4 4.7 3.5 7.0
Value of assets—Total-------------------------- 33,368. 9 2,243.1 31,125. 8 100.0 100.0 100.0
Cash____________________________ 903.3 283.0 620.3 2.7 12.6 2.0
Investment assets_________________ 31,498.1 1,842.0 29,656.1 94.4 82.1 95.3
Government obligations________ 3,909. 9 960.3 2,949. 6 11.7 42.8 9.5
Nongovernment bonds 14i 388. 9 237.6 14,151.3 43.1 10.6 45.5
Preferred stock______ ___ ___ _ ' 703.2 16.7 686.5 2.1 0.7 2.2
Common stock________ ____ 10, 638.7 547.2 10,091.5 31.9 24.4 32.4
Other investment assets. ______ 1,857.2 80.2 1, 777.0 5.6 3.6 5.7
All other assets___________________ ' 967. 6 118.1 849.5 2.9 5.3 2.7
i Data are included for plans having fiscal, policy, or contract years ending between Jan. 1 and Dec. 31,
I960.
2 Includes a small number of plans which are primarily pension benefit plans but which also provide
some welfare type benefits.
281
Table 3.—Distribution of welfare and pension benefit plans during I9601 by value
of assets held by plans
Value of assets held by plans
Number of plans Percentage distribution
Totalall
plans
Welfare
benefit
plans
Pension
benefit
plans
Totalall
plans
Welfare
benefit
plans
Pension
benefit
plans2
Totftl—all plans _ __________ 120,510 95, 980 24, 530 100.0 100.0 100.0
No assets held by plans:
Unfunded plans (benefits paid from
general assets of employer or employc-
c organization)___________ 6,560
91,430
12,840
3,140
1,460
920
610
910
500
300
230
200
160
110
110
500
170
100
50
30
50
30
10
10
100
5,190
84,900
4,540
570
220
130
90
110
60
40
20
20
10
10
10
50
10
(3)
(»)
(3)
0
(’)
0
0
10
1,370
6,530
8,300
2, 570
1,240
790
530
800
440
260
210
180
150
100
100
450
160
100
50
30
50
30
10
10
90
5.4
75.9
10.7
2.6
1.2
.8
.5
.8
.4
.3
.2
.2
.1
.1
.1
.4
.1
.1
0)
0)
0)
0)
0)
0) .1
5.4
88.5
4.7
.6
.2
.1
.1
.1
.1
0)
0)
0)
0)
0)
0) .1
0)
0)
0)
0)
.0
0)
.0
.0
0)
5.6
26.6
33.9
10.5
5.1
3.2
2.2
3.3
1.8
1.1
.8
.7
.6
.4
.4
1.8
.6
.4
.2
.1
.2
.1
.1
0) .4
Insured plans (benefits guaranteed)—.
Assets held by plans in trust or special fund:
Undor $200 000 __________________
$?.0n 00O-$399,999___________ _____-
$100000 $599 999 . _____ _________
$ro o ’o o o -$799 999 ____ ________ __
$«Qo’f>OO-$999’999. . __________ __
$1 ”o6o 000-$1 499,999.______________
$1’.500 000 $1 999.999____ _______ ___
$9'000'600 $2’499^999 _____ ____ _____
$9’s 6o ’6o 6-$2 '999^999____________ ___
$a’o66’66o-$3 499^999____ _ ________
$3'5o6’6o6-$3;999;999_. . __________
$4’060'606 $4 .599;999 ______ ______
$4’fi66'oOO-$4J)99,999_____________ ..
$.5’066’606—$9999^999 ____ __________
$10 000 000-,$14,999.999____ _________
ifil .5’666’066—$19’999’999___ __________
$26’o66’656-$24;999;999___ ....___
$95’666’666-$29;999^999... . _______
$30’660 odd—$34’999'999_____________
$35'o0fl0(l 0-839^999’999______________
$40000000- $44^999/999______________
$45’666’666-$49;999;999______________
$50 000 000 and over
1 Data included are for plans having fiscal, policy, or contract years ending between Jan. 1 and Dec. 31,
Includes a small number of plans which are primarily pension benefit plans, but which also provide some
welfare type benefits.
« Fewer than five plans.
< Less than 0.1 of 1 percent.
Tab le 4.—Distribution of welfare and pension benefit plans during 1960 1 by
number of employees covered
Number of employees
covered
Number of plans Percentage distribution
Totalall
plans
Welfare
benefit
plans
Pension
benefit
plans 2
Totalall
plans
Welfare
benefit
plans
Pension
benefit
plans 2
Total—all plans---------- 120,510 95,980 24,530 100.0 100.0 100.0
10,240 7,880 2,360 rr 8.2 9.6
3~(F39 - __________ 13,160 10,660 2,500 10.9 11.1 10.2
40-49 __________ 9. 590 7,720 1,870 8.0 8.0 7.6
50-59___________ - - - 7,560 6,020 1,540 6.3 6.3 6.3
60-69 _ - - - 6,100 4,900 1,200 5.1 5.1 4.9
70-79 _____ 5,040 4,090 950 4.2 4.3 3.9
80-89 _ - -_________ 4,130 3,350 780 3.4 3.5 3.2
90-99 _ __ ____ 3,470 2,810 660 2.8 2.9 2.7
100-199_______ ____ 20,000 16,090 3,910 16.6 16.8 15.9
200-299 __ - — 9,050 7,230 1,820 7.5 7.5 7.4
300-399 -- ____ 5,310 4,220 1,090 4.4 4.4 4.4
400-499 _ ____ __ -- 3,420 2,730 690 2.8 2.8 2.8
500-599__ _ _ _ - 2,820 2,050 770 2.3 2.1 3.1
600-699-_ - - - ____ 1,890 1,490 400 1.6 1.6 1.6
700-799 __________ - 1,520 1,180 340 1.3 1.2 1.4
800-899. _______ 1,250 990 260 1.0 1.0 1.1
900-999 _______ ___ 1,020 810 210 0.8 0.8 0.9
1,000-1,999. ____________ 5,250 4,170 1,080 4.4 4.3 4.4
2’000-2^99. _ . . 2,050 1,620 430 1.7 1.7 1.7
3’000-3,999 _____ 1,240 1,010 230 1.0 1.1 1.0
4'000-4’999 ___ . 860 650 210 0.7 0.7 0.8
3,760 3,000 760 3.1 3.1 3.1
Unknown_________________ 1,800 1,330 470 1.5 1.4 1.9
i Data included are for plans having fiscal, policy, or contract years ending between Jan. 1 and Dec. 31,
2 Includes a small number of plans which are primarily pension benefit plans but which also provide some
welfare type benefits.
282


WOMEN’S BUREAU
A growing national interest in the status o£ women and their place in
our American society as homemakers, workers outside the home, and
volunteers in community activities has been reflected in the work of the
Women’s Bureau and in the demands for its services during fiscal 1963.
Much of the Bureau’s activities centered around efforts to establish the
principle of equal pay for women in jobs where men and women do the same
or comparable work. The Bureau has long been interested in this problem,
considered basic to the economic advancement of women. Efforts of numerous
organizations and individuals to secure legislative action culminated
in adoption of the Equal Pay Act of 1963, which was signed by the President
on June 10. Those concerned in promoting the legislation relied
heavily upon the Women’s Bureau for technical advice and information.
Extensive data were made available by the Bureau for use in testimony
before congressional committees.
The work of the President’s Commission on the Status of Women (PCSW)
added new dimensions to the Bureau’s programs. This Commission, established
December 14, 1961, conducted nationwide investigation of problems
confronting women of today. The Bureau assisted by providing extensive
advisory service and by developing technical materials relating to women’s
civil and political status, protective labor legislation needs, and other
areas of concern to women workers.
Additional regional offices made it possible for the Bureau to extend
its program to a greater number and variety of local groups and individuals,
and to broaden the scope of its research activities. With regional offices
in Chicago, Boston, San Francisco, and Atlanta, individual advisory services
of four regional directors were made available. In addition, the
Bureau’s field service was utilized in a series of regional conferences which
considered the problems of working women of all ages and at all levels of
occupational competence. For these meetings the Bureau was cosponsor
with State labor departments, universities, labor unions, management
groups, and women’s organizations.
The Bureau has had particular concern for the low-wage disadvantaged
groups which include private household workers, laundry workers, and
migrants. Study of employment conditions and training needs of these
workers is a basic Bureau activity; a long-range goal is the development
of programs to improve their wages and working conditions.
Technical advisory service dealing with minimum wage, equal pay,
hours of work, and other State laws governing working conditions of
women was provided to administrators of State agencies, unions, women’s
711-471—64------- 19 285
and civic groups, and others interested in State labor legislation affecting
women.
Analyses of proposed legislation also were made available, as were data
on women’s rights under State family and property laws. This information,
published in individual booklets for each of the 50 States, together with a
U.S. summary, comprises the Bureau’s Bulletin 157 series. Many of the
State reports were revised and a revision of the summary is in progress.
Brief statistical reports were issued concerning women workers in several
States. These summarize facts about women’s employment, income,
education, personal characteristics, and occupational and industrial status,
as revealed by the i960 decennial census.
A new study, “Negro Women in i960,’’ was based on data collected in
the decennial censuses. It shows improvement in the employment status
of Negro and other nonwhite women, as indicated by the greater variety
and skill of their jobs, the rise in their educational preparation, higher
income levels, and wider access to employment opportunities.
Special emphasis was placed on the need for educated women and a study,
“Job Horizons for College Women in the 1960’s,’’ was prepared for publication.
It describes briefly the principal professions—in emerging as well
as traditional fields—-open to both young college women and mature
graduates. Both publications will be available early in fiscal 1964.
As part of the U.S. Government’s program of international cooperation,
the Bureau planned programs of study and observation for women leaders,
specialists, and trainees from Africa, Asia, Latin America, and Middle
Eastern countries as well as for officials of government agencies similar to
the Women’s Bureau in Argentina, Japan, and Canada.
The Women’s Bureau played a major role in the U.S. Department of
Labor exhibit at the U.S. Trade Fair in Mexico. Theme of the exhibit
was “Employment of Women in the United States.”
The Director of the Bureau contributed a paper, “Women in the Labor
Force,” to the United Nations Conference on the Application of Science
and Technology for the Benefit of the Less Developed Areas, held in Geneva,
Switzerland, in February 1963. The Bureau also contributed to a U.N.
report coordinating information from member nations on law and practice
in the dissolution of marriage, annulment of marriage, and judicial separation.
The report was made available to the 17th session of the U.N.
Commission on the Status of Women.
LEGISLATION
The Women’s Bureau provided technical services and materials to Federal
and State governmental bodies, international agencies, women’s and civic
organizations, unions, and other groups and individuals concerned with
laws and standards governing women’s status. As a major new activity,
the Bureau was assigned responsibility for providing technical assistance and
materials to committees of the President’s Commission on the Status of
Women.
286
Equal Pay
The enactment of Public Law 88-38, Federal Equal Pay Act of 1963,
marked a new milestone in the progress of women toward equality in economic
status.
The Bureau Director testified at hearings on both Senate and House equal
pay and related bills. She supplied extensive supporting materials, which
included results of a questionnaire on the use of administrative hearings in
enforcement of State equal pay laws.
A series of conferences was held with interested persons in the Department,
women’s organizations represented on the National Committee
for Equal Pay, Members of Congress, and other groups and individuals.
Following enactment of the law, the Bureau prepared a leaflet, “What
the Equal Pay Principle Means to Women,” to acquaint members of women’s
organizations and others with the provisions of the new law and the
history of activities leading to its adoption.
Equal pay bills were introduced during the year in iz States that did not
have such legislation. Adoption of such laws in Vermont and Missouri
brought to 14 the number of States that now have such legislation. Enactment
of the Missouri law followed a long campaign conducted by the
State branch of the American Association of University Women and cooperating
organizations. The Women’s Bureau furnished continuous technical
advisory assistance.
Members of women’s organizations and others working for adoption of
such bills in additional States also relied heavily on the Bureau for technical
advice and materials. These included State labor departments in North
Dakota and Oregon, the American Association of University Women in
Maryland, and the State Federation of Business and Professional Women’s
Clubs in the District of Columbia.
The Bureau revised several of its equal pay publications, including the
“Equal-Pay Primer” and “Equal-Pay Facts.”
Minimum Wage
Continuing its efforts to advance the economic position of women in
low-wage industries, the Bureau—in collaboration with the Bureau of
Labor Standards and the Solicitor’s Office—revised the suggested language
for two draft State minimum wage bills, one providing for a fixed wage
only and the other providing for wage boards in addition to a fixed wage.
A committee of State minimum wage administrators met in Washington
and cooperated in the preparation of the revised language.
During the year, four States amended their minimum wage laws to increase
their statutory minimum wage rates: Idaho from 75 cents to $1 an
hour; New Mexico from 75 cents to 80 cents an hour (service workers from
65 cents to 70 cents); North Carolina from 75 cents to 85 cents an hour;
Nevada for females 18 years of age and over from $1 an hour to $1.1 z%
287
until September 3, 1964, when it will increase to $1.15 an hour, and for
females under 18 from 87% cents to $1 an hour.
Amendments to other provisions of minimum wage laws were adopted
in Rhode Island, Connecticut, Hawaii, and Minnesota. In addition, a total
of zo wage orders establishing increased minimum wage rates were issued
in Puerto Rico and 8 States: Kentucky, New Jersey, North Dakota, Ohio,
Oregon, Pennsylvania, Utah, and Washington. A newly issued order in
Pennsylvania for candy stand attendants in motion picture theater lobbies
sets a minimum rate for an occupation exempt from the statutory rate.
The Bureau assisted States by furnishing technical advisory services and
materials in connection with proposed minimum wage legislation or the
revision of wage orders. Among them were: Minnesota on learner provisions
in wage orders for use in court cases; Washington on recent progress
made in other States; Wisconsin on wage order provisions and enactments of
special interest for women workers; Michigan on pending minimum wage
legislation; Ohio wage board member on wage orders for the drycleaning
industry; New Jersey Consumers League on a technical aspect of a minimum
wage bill in relation to coverage of workers receiving old-age and survivors
insurance.
On request of the Administrator of the District of Columbia law, extensive
technical services, including participation in a drafting conference
called by the House District Committee, were furnished on proposals to
amend the District of Columbia minimum wage law by establishing a
statutory rate and bringing men under coverage. Testimony was presented
at public hearings before the District of Columbia Citizens Advisory
Council, and a Bureau staff member served as a member of the Health
and Welfare Council to study and report to the District’s Commissioners
on the proposed bill.
To assist States with laws that provide for convening of tripartite wage
boards to recommend minimum wage rates, the Bureau, in cooperation
wTith the Bureau of Labor Statistics and a committee of State minimum
wage administrators, initiated a new project to develop basic standards
for use by States on a cost-of-living budget for a self-supporting woman
worker.
A complete revision of the Bureau’s Bulletin Z67, Part II, ‘ ‘ State Minimum-
Wage Laws and Orders,” combining the original report and four supplements,
was prepared. The report of the November 1961 conference of
State minimum wage administrators was made available for general
distribution. Leaflet 4, ‘‘State Minimum-Wage Laws,” was revised.
Hours and Working Conditions
Requests for Bureau services reflected increased public interest in hours
of work and working conditions of women. The preponderance in the
labor force of married women and women in the extreme upper and lower
age brackets has directed increased attention to the need for insuring the
adequacy of basic standards and protective legislation for these groups.
288
Also, the growing employment of women workers and the increasing recognition
of women’s important contribution to the national economy have given
rise to demands for greater flexibility in laws governing their hours and
conditions of employment. These aspects were reflected in bills dealing
with special labor laws for women introduced in the various State legislatures;
for example, 41 bills pertaining to women’s hours of employment
were introduced in 18 States in 1963.
One proposal of particular interest on which the Bureau furnished
technical advisory services was a proposed amendment to the California
maximum hour law to allow women to work beyond 8 hours a day and 48
hours a week in defense production. The Bureau furnished information on
recommended standards and legal provisions for relaxation in other States
to various unions and to the legislative sponsors of bills. Another subject
on which recommendations were frequently sought by employers and unions
related to safe practices on jobs requiring lifting or carrying of heavy
weights. Advice on standards for maternity leave and the question of
maternity benefits and reemployment rights also was frequently requested.
Digests of State legislation on women’s hours and working conditions
were prepared by the staff of the Women’s Bureau and distributed to
governmental and voluntary groups. Three States adopted amendments
revising the coverage of their maximum hour laws for women: Colorado,
Maine, and Connecticut. Colorado exempts females employed in clerical
office positions in establishments covered by the 8-hour law; Maine extends
coverage of the 9-hour-day, 54-hour-week (9-54-hour) law to females
employed in nursing homes; and Connecticut brings under coverage of the
9-48-hour law women and minors employed in amusement and recreation
industries as well as in bowling alleys, shoeshining establishments, and
billiard parlors or poolrooms. These were previously covered by a 58-
hour-week law, now repealed.
Four States adopted amendments affecting basic standards: Idaho, which
prohibited employment of women in covered establishments more than 9
hours a day, now prohibits their employment for more than 8 hours a day
and 48 hours a week unless 1% times the regular rate is paid for hours
worked over 8 a day and over 48 a week; Rhode Island, which set a maximum
of 9 or 9% hours a day and 48 a week, amended its law to permit
employment under specified conditions as long as 10 hours a day and 51
hours a week, provided not less than 1% times the regular rate is paid for
hours in excess of 48 a week; New York recodified the labor law provisions
relating to the working hours of women and minors, making various
changes; Massachusetts extended its emergency relaxation law for women
and minors under specified conditions for a i-year period until July 1, 1965.
Civil and Political Status
Two background papers were provided for the President’s Commission
on the Status of Women, Committee on Civil and Political Rights: “Differences
in State Family and Property Laws Affecting Men and Women” and
289
711-471—^64------- 20
“Problems in Connection with the Domicile of a Married Woman.”
In addition, brief studies on specific areas of the civil or political status of
women were prepared for use in consideration of specific problem areas:
“Eligibility of Women for Jury Service” (two studies); “Estates in Curtesy
and Dower Provided by State Law, August i, 1962."; “Allowance of Alimony
on Divorce”; “State Laws Re Natural Guardianship and Support
of Minor Children”; “State Laws Affecting Selected Political and Property
Rights of Women as of January 1, 1938, January 1, 1953, and January 1,
1963.”
Technical assistance was given to the Committee in drafting a questionnaire
concerning 11 problem areas in family and property law. It
was designed to obtain specific information from practicing lawyers concerning
their experience in the application of State law in their fields.
This questionnaire was sent to local representatives of the National Association
of Women Lawyers and to local representatives of the Family Section
of the American Bar Association.
Work continued on Women’s Bureau basic research in civil and political
status of women, Bulletin 157 series. Separate State reports were revised
and brought up to date for the District of Columbia, West Virginia, New
Mexico, Massachusetts, Connecticut, and Georgia. Draft revisions of
California, Ohio, Michigan, and Texas reports were begun. Summary
materials on marriage laws, divorce laws, guardianship laws, and minors’
contracts have been prepared for use in revision of the U.S. summary.
Other materials which the Bureau made available included special
summaries of family and property laws of Iowa, Michigan, Ohio, and
Wyoming, prepared for Girls’ State meetings; a special report on North
Carolina family and property law, prepared for North Carolina State
College; historical background of the legislative proposals for income tax
deductions for child care of employed persons, prepared for the Congressional
Quarterly; information concerning experience under State equal
rights provisions, prepared for women’s groups interested in the so-called
equal rights amendment to the Constitution.
Numerous congressional proposals affecting women were analyzed and
comments prepared tor the Solicitor’s Office, including draft legislation
for the National Service Corps Act and H.R. 4158, a bill to codify laws on
organization of the U.S. Government.
During the past State legislative sessions, many significant laws were
enacted affecting the civil and political status of women. Idaho enacted
a statute removing the provision allowing a woman to decline to serve as
a juror on the basis of sex alone, thus bringing to zi the number of States
in which women serve as jurors on the same basis as men. Texas enacted
two laws which greatly increased the power of married women to control
and manage their separate property, one removing the previous legal requirement
that a husband must join the wife in any conveyance of the
separate land of the wife. North Carolina amended its law, subject to
popular referendum, to delete the requirement that any conveyance of the
290
separate real property of the wife must have the written consent of her
husband. Pennsylvania increased from $750 to $1,000 the amount of
wages, salary, and accrued pension due a deceased employee that may be
paid to the surviving spouse or other designated relative, and at the same time
authorized that any accrued vacation benefits be included in such sum.
Wisconsin’s law, which permits a surviving spouse or certain relatives of
a deceased State or local government employee to receive the full amount of
earnings due from employment, was amended to include vacation allowances.
A number of enactments in other States also carried forward the trend
to equalize the application of provisions of family law for persons of
both sexes, among them Maryland, Oregon, and Arkansas.
The interest of the States in improving their domestic relations laws
was evidenced by the number of States authorizing or conducting studies.
New York, which had created a joint legislative committee on matrimonial
and family laws in 1956, authorized a continuance of the committee
for another year. In Montana, the Governor’s Commission on Domestic
Relations, appointed to study the problems of teenage marriage and divorce
and to develop a model family code to promote the stability of marriage,
submitted its report in November 196Z. In California, the Interim
Committee on Judiciary submitted its final report on the adoption law and
the interlocutory divorce period. Ohio requested the Judicial Council to
investigate residence requirements in divorce, and to make recommendations
and submit draft legislation.
Eighty-five joint resolutions proposing so-called equal rights amendments
to the Constitution were introduced into Congress. On April z,
1963, the President approved Public Law 88-4 which amends the Internal
Revenue Code to provide that the deduction for child care expenses should
be available to a wife who has been deserted by and cannot locate her
husband, on the same basis as such deduction is available to a widowed
or divorced woman.
Women’s opportunity for Federal employment on the basis of merit and
training was increased by the Justice Department’s reinterpretation of an
1870 statute which served as a legal basis for permitting Federal appointing
officers to specify jobs for male only or female only. On July Z3, 196Z,
a Presidential directive provided that appointments and promotions in
the Federal career service should be made without regard to sex, except
under unusual circumstances where such action has been found justified
by the Civil Service Commission.
INTERNATIONAL PROGRAM
United Nations
The Bureau Director contributed a paper, “Women in the Labor
Force,” to the U.N. Conference on the Application of Science and Technology
for the Benefit of the Less Developed Areas, held in Geneva,
Switzerland, February 1963.
291
International Labor Organization
Various ILO reports such as “Women Workers in a Changing World
and “Conditions of Employment in the Textile Industry” were reviewed
and comments prepared. The Bureau also participated in the preparation
of Department position papers for ILO meetings dealing with aspects of
employment of particular interest to women workers.
U.N. Commission
The Chief of the Women’s Bureau Division of Legislation and Standards
served as technical adviser at the 17th session of the United Nations
Commission on the Status of Women. Two outstanding accomplishments
of the session were a proposal for a new series of U.N. regional seminars
on the advancement of women in the developing countries, and the completion
of a draft “Marriage Recommendation” incorporating the principles
approved by the General Assembly and designed to supplement the
Marriage Convention adopted in November 1961. It provides for regular
reports on law and practice regarding marriage from all member states,
regardless of whether they become parties to the convention. Adoption
of the recommendation by the next session of the General Assembly will
encourage recognition of stable family life as the foundation for national
progress.
The regional seminars on the advancement of women in developing
countries will be started 1 years hence, after completion of the current
series on the status of women in family law. They will promote the
objectives of the U.N. Development Decade, in which increased economic
production is a major aim, and give special attention to women’s educational
needs, vocational and professional training, and employment
opportunities. The Commission’s choice of seminar topic reflected the
increasing importance of women in the work force of all countries, and
particularly in nations seeking to lift production levels.
During the year, the U.S. reply to the U.N. questionnaire on “Legal
Conditions and Effects of Dissolution of Marriage, and Judicial Separation”
was prepared by the Bureau. The report on this subject prepared
by the U.N. Secretary General on the basis of replies of all member governments
will be considered by the U.N. Commission on the Status of Women
at its 1964 session.
Foreign Women Leaders
As part of its continuing program of assistance to women of foreign
countries, Bureau staff conferred with 51 women leaders; specialists, and
trainees from 2.6 countries to discuss the economic and social status of
U.S. women and their organization programs and community service
projects. Aid was given to the majority of these women in planning
overall programs for their special interests and needs. Of significance
was the increasing number of women leaders from Africa, 15 from 7 coun-
292
tries: Cameroon, Gabon, Kenya, Malagasy Republic, South Africa,
Tanganyika, and Togo.
Information
The “Role of Women in the U.S. Work Force’’ was the theme of the
Department of Labor’s exhibit at the U.S. Trade Fair in Mexico, and the
Women’s Bureau staff cooperated in planning the exhibit. A booklet on
employment of women in the United States was prepared for translation
into Spanish and was distributed at the fair. The Chief of the Bureau’s
International Division attended as a member of the Labor Mission to the
trade fair. She arranged a tour and meeting for leaders of women’s organizations
and trade union women, visited factories and several women’s
organizations, made speeches about women’s employment in the United
States, and conferred with the Chief of the Women’s and Minors’ Division,
Mexican Department of Labor, and with other women executives in the
Mexican Government.
The following manuscripts were prepared for an International Reports
series for general distribution: “Women in High-Level Elective and
Appointive Positions in National Governments’’; “Policies of National
Governments on Employing Women’’; “Equal Pay in Member Nations of
the International Labor Organization’’; “Protective Labor Legislation for
Women in 91 Countries”; “Maternity Protection and Benefits in 92. Countries”;
“Notes on Women’s Employment in the United States and Nine
European Countries.”
Discussions were held with 3 Brazilian trade union women in a training
course at the In ter-American Institute for Free Labor Development; 19
social workers from Cyprus, Panama, Turkey, Pakistan, Argentina, Greece,
Malaya, Laos, Jordan, Taiwan, and Iran; 4 students of social work from
the University of Hawaii; a Girl Scout leader from Korea; and 5 women
Members of Parliament from Finland.
The role of women in the economy of the United States was interpreted
in 38 sessions to 185 foreign participants during the Labor Department
orientation program.
Explanations concerning establishment of the Women’s Bureau, its
continuing work, publications, and staffing pattern were sent to a leading
woman official in the Korean Ministry of Health and Social Affairs, and
to women leaders in the Netherlands and Nyasaland.
Selected publications were sent to the Inter-American Regional Labor
Organization in Mexico for use in training programs for Latin American
trade union women, and equal pay material and other publications were
sent to a number of other countries.
Services to U.S. Groups
Women’s employment, standards, and working conditions, and work of
the Women’s Bureau were discussed with 13 Latin American women
293
leaders who participated in a “Citizens in a Free Society” seminar sponsored
by the Overseas Education Fund of the League of Women Voters.
Discussions also were held with xo Latin American women in newspaper
work, radio, and television, who were visiting under the sponsorship of
the Committee of Correspondence, Inc., of New York, N.Y.; and with 9
African women students attending Howard University summer classes under
the auspices of the Women’s Africa Committee of the African-American
Institute.
A Women’s Bureau representative served as a resource specialist on
international programs at a leadership training conference of the National
Council of Negro Women, and spoke on “Women’s Changing Status
in the World—Challenge to the YWCA” at the annual meeting of the
Pittsburgh area YWCA.
Pertinent information about U.S. women and the addresses of women
leaders in other countries were given to a number of U.S. citizens to assist
them in their overseas assignments.
Cooperation With Other Agencies
The Women’s Bureau staff participated in planning two Agency for
International Development workshops for women community and rural
leaders in Latin American and Asian countries.
For United States Information Agency overseas officers, material for a
new packet directed to women was reviewed and commented upon.
For the Bureau of Educational and Cultural Affairs, Department of State,
comments were prepared on a proposed research project on the role of
women in developing countries.
For the Bureau of Labor Standards, U.S. Department of Labor, the draft
for a handbook entitled “Role of a Labor Department in Developing Countries”
was reviewed, and comments relating to women workers prepared
and correlated for the final manuscript.
For the Bureau of International Labor Affairs, a plan for evaluating the
effectiveness of Labor Department trainees’ and leaders’ programs was
prepared.
FIELD SERVICE
Fiscal year 1963 saw the establishment of Women’s Bureau regional
offices in Atlanta, Boston, and San Francisco. A Chicago office had been
set up in fiscal 196X. The Bureau’s four field offices are located in the same
regional offices as other bureaus of the Department of Labor.
The experiment of decentralizing Women’s Bureau technical assistance
by placing regional directors in the field has proved a highly effective
method of operation. The pace of contact and cooperation with women’s
organizations, employer groups, unions, and other government and public
agencies has increased markedly. Easy access to the services of the Bureau
representative has made this possible despite the fact that each Women’s
Bureau regional director is responsible for at least xx States. Technical
294
assistance to community groups and State departments of labor has been
helpful in the increased activity directed toward enactment of minimum
wage laws or the improvement of existing minimum wage laws, in action
on equal pay legislation, and in the development of day-care services for
working mothers.
The field staff has encouraged the establishment of State commissions on
the status of women. It has cooperated with women’s organizations,
> given information and advisory assistance, and, at the close of the fiscal
year, reported that Governors’ commissions have been established in nine
States: Alabama, Delaware, Illinois, Indiana, Iowa, Michigan, Minnesota,
North Carolina, and Washington. Preliminary contacts have been made
® in zo other States.
One major vehicle for working with significant segments of the communities
and for coordinating efforts on local, State, and regional levels is
the development of conferences on problems of working women. Such
conferences involve assistance from both field staff and Washington Bureau
personnel, and may include only one or as many as three States within a
region where concerns are similar.
Six major conferences have been held at Howard University, University
of Utah, Michigan State, Iowa State University, University of Minnesota,
and Boston University, respectively. An average of 300 persons participated
in each of these conferences. Plans are in the making for four more in the
early fall in Ohio, Washington State, Indiana, and Kansas.
In addition to assisting with conferences which are cosponsored by the
Women’s Bureau, regional directors are in great demand as participants and
speakers for other conferences.
Beside their major involvement with the objectives of the Women’s
Bureau, regional directors cooperated with other Department of Labor
field representatives on youth programs, on Manpower Development and
Training Act aspects of training for women, and with Bureau of Employ-
» ment Security Community Round Tables. They served also on regional
committees for two special assignments relating to suggestions for meeting
problems of unemployment in the regions and ways and means for improving
relationships between State and Federal governments.
t
WOMEN IN THE WORK FORCE
Women’s rising participation in and contribution to the economic life
of our country were documented in the “196Z Handbook on Women
Workers,” the eighth biennial edition of this handbook. This comprehensive
summary of basic statistical, economic, and legislative information
about women workers provides newly available data and brings previous
editions up to date. It serves as a sourcebook for employers, labor unions,
government officials, educators and counselors, women’s organizations, and
other individuals and organizations interested in facts about women’s
employment.
295
Number Employed
During fiscal 1963, the number of women workers (employed or seeking
work) rose to a new high of 2.4,798,000—more than one-half million above
fiscal 1962. Further analysis of the employment data which follow
reveals that the number of women who were employed increased 2.4 percent
while those who were unemployed decreased 2 percent. As a result,
women’s unemployment rate dropped from 6.6 percent in fiscal 1962 to
6.3 percent in fiscal 1963.
Women in the population and labor force
Monthly average for
year ending June 30
Change from 1962 to
1963
1963 1962 Number Percent
Women 14 years of age or over____________________ - 67,386, 000 66,260, 000 +1,126,000 +1.7
In the labor force_____________________ __ __ -__ - 24. 798,000 24,274,000 +524,000 +2.2
Employed ________________________________ ___ 23,226, 000 22,671,000 +555,000 +2.4
Unemployed__________________________________ 1, 571,000 1,603, 000 -32,000 -2.0
Not in lt*ahbeor force_____ ______ _________________ 42, 588,000 41, 986, 000 +602,000 +1.4
Equal Pay Studies
Continuing concern about pay practices resulting in inequitable treatment
of women led to further study of pertinent wage and salary information
prior to passage of the Equal Pay Act of 1963. Women’s Bureau
representatives visiting public employment offices in 9 cities in 1963
found 91 examples of job orders with wage differentials. These were job
vacancy reports on which employers had listed a single job title but a
higher hiring rate for men than for women. In about one-third of the
job orders, the wage differential amounted to 10 percent or less of the
men’s rate; in over one-half of the orders, 11 to 25 percent; and in the
remaining orders, 26 percent or more.
Two surveys made by private employment groups show how employers
view their own pay practices. In one survey, employers were asked
if they had a double standard pay scale for men and women office workers.
One-third answered “yes” and two-thirds answered “no.” The
second survey, covering a sample of employers who were asked whether
they always pay women the same salary as men in the same job, reported
that 83 percent responded “always” and 17 percent “sometimes.”
Because broad generalizations about the comparative labor costs of men
and women workers are sometimes used to justify lower wage rates for
women, an analysis was made of impartially collected statistics and a
summary of the findings was released under the title “ What About Women’s
Absenteeism and Labor Turnover?” This statement reported, for example,
that a Public Health Service study of worktime lost throughout the
economy because of illness or injury shows an average of 5.6 days lost
by women and of 5.5 days lost by men during the survey year (July 1959-
June i960). Also included was a Bureau of Labor Statistics study of job
296
mobility in 1961 indicating that men tend to move from one job to another
more often than women. According to that study, n percent of men workers
but only 8.6 percent of women workers had more than one job in 1961.
Even more important, the Women’s Bureau statement emphasized the
need to compare absenteeism and labor turnover experiences of those holding
similar jobs or with similar job characteristics. Statistics obtained
by the Department of Labor showed that among both men and women
workers the lowest quit rates occurred among professional, managerial,
and skilled workers, and the highest quit rates among sales, service, and
unskilled workers. The fact that large numbers of women are in these
latter groups and relatively few in the skilled groups accounts to a large
extent for the unfavorable generalizations about the labor turnover rates
of women workers.
Similarly, the age of workers and their length of service are also significant
factors in separations. Only small differences were found to exist
in the separation rates of men and women 45 years of age and over. Among
younger workers analyzed in terms of occupational groupings, there was
considerable variation—with the younger women in some groups having
lower quit rates on the average than their male counterparts. In each
age group, the highest separation rates occurred among the men and
women workers with less than one year of service with the employing
company. With large numbers of women employed on a part-time or
intermittent basis, there is often a concentration of women in the group
having high turnover rates and thus a tendency for the situation to appear
unfavorable for all women.
Employment Opportunities
The growing interest in part-time employment among married women
in many countries, as well as in the United States, stimulated further
study of this subject. According to the latest data available, the number
of women engaged in part-time work in this country approximated
6.5 million in 1962. and is expected to rise to 9 million by 1975- Numerically,
the largest groups of women with part-time jobs were private-household
workers, other service workers, clerical workers, farm laborers, and
saleswomen. About 85 percent of the women who worked less than 35
hours a week in 1961 customarily were part-time workers—primarily
because of home or school responsibilities, lack of interest in full-time
work, or illness.
As part of the Bureau’s publications program which provides occupational
information to women and girls, major work was completed during the
year on a review of job opportunities for college women. Scheduled for
release early in calendar year 1964, “Job Horizons for College Women in
the 1960’s’’ expands and updates a similar bulletin published in 1956.
It indicates the broad range of job opportunities open both to young college
women and mature graduates seeking to return to the labor force. The
297
approximately 35 jobs which are briefly described include not only traditional
fields of work but also expanding and emerging professions.
As additional background information, the bulletin provides some
general remarks relating principally to the place of paid employment in
the lives of the majority of college women; some practical considerations
concerning graduate study and salaries; statistical data describing college
women’s employment; and further sources for more detailed information
about occupational opportunities.
A brief article describing the effects of. automation on the employment
of women telephone workers was prepared for the Occupational Outlook
Quarterly. This summary is based on a more detailed study of telephone
operators and other women telephone workers employed by the major
telephone system from 1945 to i960, as revealed by employment statistics
available from the Federal Communications Commission. Publication of
the summary article will follow the fall 1963 release of a bulletin entitled
“Women Telephone Workers and Changing Technology.’’
Analysis of I960 Census Data
The wealth of statistical data collected in the i960 census concerning
the social and economic characteristics of the population provides much
pertinent information about women’s employment for further summary
and analysis. The first in a series of analytical bulletins issued by the
Women’s Bureau last year was focused on a comparison of women’s employment
in 1950 and i960 with emphasis on the geographical differences
among women workers.
The second analytical bulletin based on i960 census data is expected to
be released early in calendar year 1964 under the title “Negro Women
Workers in i960.” Comparisons of i960 employment data with those
available for 1940 and 1950 indicate a pattern of steadily rising gains for
Negro and other nonwhite women—in terms of kinds of jobs, industries
of employment, levels of income, amount of education, and accessibility
to employment opportunities.
The major occupational shifts of Negro women have been away from jobs
of private-household workers, farmers, and operatives and into those of
clerical, professional, technical, sales, and miscellaneous service workers.
At the same time, significantly larger numbers of Negro women have been
employed in banking, retail trade, medical and other health services,
public administration, and certain branches of manufacturing that are
expanding.
These changes have been related to the continuing migration of Negroes
away from rural areas and into industrial and metropolitan areas and to the
noticeable flow out of the South into other regions of the country. With
these moves has come a wider range of employment opportunities for
Negro women. Another influential factor has been the steady rise in edu-
298
cational preparation—with many more nonwhite women graduating from
grammar school or high school than previously.
The favorable response to the State data contained in the published
bulletin prompted the Women’s Bureau to plan another series of reports
to summarize information available from the i960 census concerning women
workers in each of the 50 States. During fiscal 1963, reports were released
for 15 States and work was continuing for others. Each report contains
brief textual statement and 10 tabulations describing such basic characteristics
of women workers in the State as their number, age, marital status,
occupations, industries, earnings, income, and education. Since detailed
State data are available only from the decennial censuses, the reports have
been very helpful, particularly for use in regional offices and at regional
conferences.
Special Activities
In recent years there has been mounting interest in “ continuing education
for women,” particularly for mature women whose concentration on home
and family matters has resulted in the deterioration of former skills. This
interest was reflected in a rising number of inquiries for background information
which could be used in developing special educational programs for
women at colleges and universities around the country. The importance
of giving special attention to this need was emphasized in numerous college
programs where the Women’s Bureau Director was principal speaker. In
addition, staff members participated in several conferences, including the
Conference on Continuing Education of Women sponsored by the American
Council on Education and the Carnegie Corporation; a workshop on
research in women’s education sponsored by the American Association of
University Women Educational Foundation, Mills College, and the Carnegie
Corporation; a conference on special degree programs conducted by
the Center for the Study of Liberal Education for Adults; a conference on
the role of women in science sponsored by Marymount College under the
auspices of the Office of Emergency Planning in the Executive Office of the
President; and a panel on continuing alumni education in the age of automation
held at Catholic University.
In response to requests for up-to-date information about women workers
in specific fields or circumstances, staff members presented a paper on women
and girls in the labor market at the National Conference on Social Welfare;
gave the keynote speech at an Earnings Opportunities Forum for mature
women; described nursing employment problems to two groups of graduate
nurses; discussed the status and activities of American women with the
foreign participants in the Philadelphia International Program for Youth
Leaders and Social Workers; and provided an overall view of the status of
women workers to several local groups of educators and women’s organization
members.
299
PRESIDENT’S COMMISSION ON WOMEN
Established by the President on December 14, 1961, under Executive
Order 10980, the Commission on the Status of Women was to complete its
assignment and present its report to the President in October 1963.
In setting up the Commission, the President said: “Women have basic
rights which should be respected and fostered as part of our Nation’s
commitment to human dignity, freedom, and democracy. ... It is my
hope that the Commission’s report will indicate what remains to be done
to demolish prejudices and outmoded customs which act as barriers to the
full partnership of women in our democracy.”
The wide-range objectives of the Commission are listed in the order: full
realization of women’s basic rights; family security and strengthened home
life; effective use of the skills of all persons in promoting the Nation’s
economy, security, and national defense; elimination of discriminations in
employment; equitable treatment of women under the law; and services
which will enable women to continue their role as wives and mothers
while making a maximum contribution to the world outside the home.
To assist in carrying out the President’s mandate, the Commission
created seven committees concerned with the following areas: Civil and
political rights, education, Federal employment, home and community,
private employment, protective labor legislation, and social insurance and
taxes. Members of the Commission served as chairmen of these committees,
which included some 70 additional persons to advise in the subject areas of
the particular committees on which they served. Government agencies
concerned with the subjects under study gave technical assistance and
provided background material and information essential to committee
deliberations.
Throughout the year, as the several committees developed their recommendations,
these were considered by the Commission. In determining
which committee recommendations or parts of recommendations it would
adopt and incorporate in its report, the Commission decided that the
comprehensive study and far-reaching recommendations should be made
available, in separate committee reports, to groups, organizations, and agencies
interested in specific areas. Therefore, reports of the seven committees
will be issued following presentation of the Commission report to
the President.
The Commission held the last of its eight meetings in May 1963, and
concurred in the final draft of its report.
The Commission was deprived of the leadership of its Chairman, Mrs.
Eleanor Roosevelt, by her death in November 1961. No successor was
appointed and Dr. Richard A. Lester, Vice Chairman of the Commission,
and Assistant Secretary of Labor Esther Peterson, Executive Vice Chairman,
continued to guide the Commission along the lines chartered by
Mrs. Roosevelt.
300
Extensive and valuable cooperation of government agencies, voluntary
organizations, and private citizens throughout the country has indicated
the keen interest with which the work of the Commission has been followed.
Public discussion of the aims of the Commission has had considerable
influence in arousing interest, which resulted in organization of several
State commissions.
Although the areas of the Commission’s studies extended beyond the
scope of program activities of the Women’s Bureau, the experience and
knowledge of the Bureau staff were utilized extensively by the Commission,
especially in the areas of civil and political rights and protective labor
legislation. The Bureau supplied background information and gave
continuing technical assistance in the studies of committees as well as to
the Commission itself.
The Bureau’s Division of Legislation and Standards supplied summaries
and analyses of laws and regulations covering provisions for overtime
work under State hours laws applicable to manufacturing; maximum daily
and weekly hours standards for women, by occupation and industry;
provisions of nightwork laws; applicability of maximum hours laws to
women bank employees, and recent experience in State maximum hours
law enforcement.
A questionnaire was distributed to women workers in selected cities in
six States, requesting their firsthand experience and recommendations
with respect to hours of work, minimum wage, and lifting of heavy weights.
Replies to the questionnaire were collated, and the findings included in a
summary report for committee consideration and action.
Two background papers were provided for the Committee on Civil and
Political Rights: ‘ ‘ Differences in State Family and Property Laws Affecting
Men and Women” and “Problems in Connection with the Domicile of a
Married Woman.” In addition, brief studies on specific areas of the civil
or political status of women were prepared for use in consideration of
» specific problem areas: “Eligibility of Women for Jury Service” (two studies);
“Estates in Curtesy and Dower Provided by State Law, August i,
1961”; “Allowance of Alimony on Divorce”; “State Laws Re Natural
Guardianship and Support of Minor Children”; “State Laws Affecting
Selected Political and Property Rights of Women as of January 1, 1938,
January 1, 1953 and January 1, 1963.”
Technical assistance was given to the committee in drafting a questionnaire
concerning ix problem areas in family and property law. It was
designed to obtain specific information from practicing lawyers, concerning
their experience in the application of State law in their fields. This
questionnaire was sent to local representatives of the National Association
of Women Lawyers and to local representatives of the Family Section of the
American Bar Association. Replies commenting on one or more of the 11
problem areas were received from lawyers in X5 States. These answers were
correlated into several charts and analyzed in a report entitled “Inquiry
301
Concerning the Impact on Married Women of Twelve Selected Problem
Areas in Family and Property Law.”
Other technical assistance also was provided, such as attending meetings
of the Commission and its committees, with data as needed, and checking
and reviewing reports.
The Women’s Bureau requested pertinent information from U.S. embassies
and prepared reports for the Commission summarizing the replies.
These reports included: ‘‘ Maternity Leave and Benefits,” * * Protective Labor
Legislation,” “Government Policies and Practices Regarding the Employment
of Women in Government Service,” “Women in Top-Level Elective
and Appointive Positions,” and “Equal Pay in Constitutions and Legislation.”
These were later prepared for general distribution.
Reports of the Swedish Government on employment of women and the
community and the vocational training of middle-aged female labor were
summarized, as was a report from England covering an investigation of
care of children of working mothers.
The Commission’s report will be a basic handbook and guide to program
and action for community groups, voluntary organizations, government
agencies, and everyone concerned with responsibilities and contributions
of women in America today.
INFORMATION SERVICE
The effectiveness of the Women’s Bureau program depends in large part
on keeping the public informed—especially those segments of the public
concerned with the welfare of working women. For this reason, the
Bureau provides the widest possible dissemination of its findings and
reports, as well as information concerning its programs and services.
During fiscal 1963, the Bureau issued a number of technical publications,
pamphlets, and leaflets. In addition to news releases on all its major
activities, the Bureau provided special articles for periodicals, including
professional journals, and material for TV and radio programs on women
as workers and as citizens.
Among the technical reports published and distributed during the fiscal
year were publications entitled “15 Years After College—A Study of
Alumnae of the Class of 1945”; “Economic Indicators Relating to Equal
Pay”; “Connecticut Valley Conference on Employment Problems of
Women”; “World of Work Conference on Career and Job Opportunities”;
“Report of the National Conference of State Minimum-Wage Administrators”;
the “1961 Handbook on Women Workers”; and “Women Workers
in i960: Geographical Differences.”
Press releases issued during the year, some of which were based on
major addresses of the Bureau Director, reported on new jobs for women,
equal pay for women who work, day-care centers for the children of
women workers, contributions of women to the Federal service, the role of
women in the space age, the need for additional women workers in shortage
302
occupations, and the plight of women in the occupations and industries
which are covered by neither Federal nor State minimum wage laws.
Indicative of the widespread interest in the status of women workers
were requests for the Bureau Director and staff members to participate in
conferences of national significance. Among these annual conventions or
other meetings were those of the National Federation of Business and
Professional Women’s Clubs, the National Council of Jewish Women,
International Council of Women, the National Conference on Social Welfare,
the National Council of Catholic Women, the National Council of
Negro Women, the Young Women’s Christian Association, and the Southwestern
Regional Governors’ Conference on the Physically Handicapped.
Growing emphasis in the education and training of women was reflected
in a number of conferences held by educational associations or institutions.
Among those in which the Bureau cooperated were meetings of the California
Association of Women Deans and Vice Principals, Smith College,
University of Nevada, College of Southern Utah, Mountain States Adult
Education Conference, Harvard University Seminar on Education and
Public Policy, and University of California School of Medicine Symposium
on Women.
Among union meetings addressed by the Bureau Director were the Utah
State AFL-CIO annual convention and the Women’s Auxiliaries of the
International Association of Machinists. Unions supplied with exhibits
of Women’s Bureau publications included the New Jersey State AFL-CIO;
International Leather Goods, Plastic and Novelty Workers’ Union; Communications
Workers of America; and the Georgia State AFL-CIO. Bureau
materials also were displayed at the Ninth Empire State-Labor Management
Exhibit, North Carolina Trade Fair, NASA Space Science Fair, Northeast
Commerce and Industry Show, and the Texas-Oklahoma Fair.
Requests for information about women who work and about the programs
and services of the Bureau came from a wide span of groups and individuals
including employers, unions, public and private employment services,
women’s organizations, church groups, students, educators, Members of
Congress, and government agencies. The Bureau distributed more than
101,000 publications. These included not only technical bulletins on
trends in women’s employment, hours, wages, and working conditions, but
a great number of publications containing career information for young
women and girls and for mature women wishing to reenter the work force.
U.S. GOVERNMENT PRINTING OFFICEH964
303


SAN DIEGO PUBLIC LIBRARY
3 1336 05750 2966