RESEARCH REPORT
RECRUITMENT, RETENTION, AND UTILIZATION OF PERSONNEL
IN WASTEWATER COLLECTION SYSTEMS IN CITIES AND TOWNS
WITH POPULATIONS UP TO 150,000
Municipal Permits and Operations Division
Office of Water Program Operations
U. S. Environmental Protection Agency
Washington, D. C. 20460
Department of Business Administration
North Carolina A&T State University
Greensboro, North Carolina 27411
Grant Award No. T-900462-01
July 1974
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RESEARCH REPORT
RECRUITMENT, RETENTION, AND UTILIZATION OF PERSONNEL
IN WASTEWATER COLLECTION SYSTEMS IN CITIES AND TOWNS
WITH POPULATIONS UP TO 150,000
by
Katie Avery White
Department of Business Administration
North Carolina A&T State University
Greensboro, North Carolina 27411
for
Municipal Permits and Operations Division
Office of Water Program Operations
U. S. Environmental Protection Agency
Washington, D. C. 20460
Grant Award No. T-900462-01
July 1974
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SECTION PAGE
List of Tables and Figures . iii
Acknowledgments iv
I. Introduction
Purpose of the Study
Objectives of the Study
II. Summary, Findings, and Recommendations
Summary
Findings
Recommendations
III. Methodology .
14
IV. Recruitment
Overview
The Study Findings
Recommendations
V. Retention
Overview
The Study Findings
Career Ladders
Promotion
Education and Training
Compensation and Fringe Benefits
Morale
Communication
Absenteeism
Turnover
Recommendations
VI. Utilization
Overview
The Study Findings
Recommendations
Appendix
A. Table 4
B. Table 5
C. Bibliography
. . . . .
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50
60
TABLE OF CONTENTS
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iii
LIST OF TABLES AND FIGURES
TABLE PAGE
1 Ten Cities Included in Study 5
2 Number of Supervisory and Nonsupervisory Personnel
Interviewed 6
3 Mission—Oriented Questionnaire Responses 17
4 Supervisory Personnel Questionnaire Responses 42
5 Nonsupervisory Personnel Questionnaire Responses 51
FIGURE
1 Career Lattice for a Wastewater Collection System . . . . 27
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iv
ACKNOWLEDGMENTS
The writer expresses her sincere appreciation to Robert C. Rose,
Chief, State and Local Training Activities Section, Municipal Permits
and Operations Division, Office of Water Program Operations, United
States Environmental Protection Agency, Washington, D. C., and to
Elie Namour, Technical Director of this study and Assistant Professor
of Economics, Bentley College, Waltham, Massachusetts, for their
extremely helpful suggestions and cooperation.
She also acknowledges the contributions of Sharon A. Spencer
and Murli K. Kairo, Research Assistants throughout most of the
project period; and colleagues and students who showed interest in
the study.
Special appreciation is extended to municipal supervisory and non—
supervisory employees for their patience while being interviewed.
Gratitude is expressed to city managers, water and sewer superintendents,
personnel directors, and other cooperating wastewater officials of the
following cities for granting permission for their municipalities to
be included in the survey: Berkeley, California; Lynn, Massachusetts;
Peabody, Massachusetts; Burlington, North Carolina; Greensboro, North
Carolina; High Point, North Carolina; Reidsville, North Carolina;
Winston—Salem, North Carolina; Martinsville, Virginia; and Roanoke,
Virginia.
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I. INTRODUCTION
In recent years, the United States has come to regard water
pollution as an urgent national problem. Continued industrialization,
increased population, and urbanization have led to the conclusion that
the water pollution crisis will become worse unless adequate remedies
are taken to alleviate the problem. Meaningful efforts to control
water pollution have begun. Wastewater collection systems and
treatment facilities are being gradually upgraded to meet the need.
One of the major problems centers around the collection and
disposal of waste in such a manner that neither the land nor the water
resources will be adversely affected. Internal to this problem in the
collection and disposal of waste is the lack of sufficient numbers of
well trained manpower. With the recent emphasis on improvements in
wastewater collection and the proposed future requirements for more
complex and advanced procedures, the short supply of qualified
personnel will become even more acute, particularly for the smaller
city or town. For example, as a result of water quality requirements
imposed by the Federal Water Pollution Control Act Amendments of 1972,
higher skilled personnel will be needed for operating and maintaining
sanitary sewers, storm sewers and sewage pumping stations, and for
conducting inspections. Employees will be required to have a wider
variety of skills and will, therefore, be more flexible and selective
relative to job opportunities and advancement. Thus, the recruitment,
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retention, and utilization of manpower will play an ever increasing
role in the control of water pollution.
Human resources are of great value to any organization. Most
enterprises have a large proportion of their funds invested in their
employees. Successful attempts must be made to develop and utilize
these human resources to their fullest extent. Knowledge and skillful
application of the fundamental managerial functions of planning,
organizing, actuating, and controlling are essential to the achieve-
ment of ultimate objectives.
Wastewater collection system managers must have the services of a
labor force that has been carefully recruited and developed and one
that is being maintained and properly utilized. These operative
phases of personnel work involve many detailed tasks. Recruitment,
for example, necessitates locating prospective workers, interviewing
them, administering any required tests, and hiring selected applicants.
Development calls for training and education, morale building,
effective communication, promotion and transfer plans, and suggestion
systems. Maintenance of the labor force covers those activfties
which serve to support workers’ skills and attitudes, such as adequate
wages and working conditions, supervision, grievance procedures, job
enrichment, recreational and social programs. Utilization of labor
concerns the working effectiveness of the employee in the position he
holds through coordination of job descriptions and employee skills.
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Purpose of the Stu4y
This particular study is concerned with current personnel
management practices in recruitment, retention, and utilization of
personnel in wastewater collection systems in cities and towns with
populations up to 150,000. The report describes conditions that
currently exist in the cities surveyed and offers recommendations
for improvement which can be utilized by all cities in this
population range.
Initially, the research project was designed to include five (5)
cities as a study base; but, because of the importance of the topic,
five (5) more cities were added for investigative purposes. Table 1
(Page 5) lists the ten (10) cities. Table 2 (Page 6) shows the
number of supervisory and nonsupervisory workers interviewed.
Objectives of the Study
The results of this study are intended to accomplish the following
objectives:
1. To furnish background information on personnel management
for those supervisors who need to know more about the
management of human resources.
2. To focus attention on the problems of recruitment, retention,
and utilization of the labor force in wastewater collection
systems.
3. To offer recommendations which, if implemented, will enable
management:
a. To recruit larger numbers of qualified applicants.
b. To retain more of those applicants in wastewater collection
employment for a longer period than is currently the case.
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c. To use properly the talents of all employees.
d. To provide opportunities for training and education
programs designed to prepare workers for better jobs
on the career ladder.
e. To open lines of communication between supervisory
and nonsupervisory personnel.
f. To boost the morale of the work force.
g. To create a more favorable work climate that will reduce
the causes of high absenteeism and turnover.
4
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TABLE 1
TEN CITIES INCLUDED IN STUDY
CITY STATE POPULATION
Berkeley California 117,000
Lynn Massachusetts 90,000
Peabody Massachusetts 48,000
Burlington North Carolina 36,000
Greensboro North Carolina 150,000
High Point North Carolina 63,000
Reidsville North Carolina 15,000
Winston—Salem North Carolina 140,000
Martinsville Virginia 22,000
Roanoke Virginia 93,000
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TABLE 2
NUMBER OF SUPERVISORY AND NONSUPERVISORY PERSONNEL
INTERVIEWED IN TEN CITIES*
CITY SUPERVISORY PERSONNEL NONSUPERVISORY PERSONNEL
A 3 14
B 7 28
C 3 15
D 1 10
E 4 46
F 1 10
G 7 5
II 2 2
I 1 3
J 2 3
TOTAL 31 136
*Cities have been rearranged and coded alphabetically for reporting
purposes.
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II. SUMMARY, FINDINGS, AND RECOMMENDATIONS
SUMMARY
A person goes to work. In the United States, this is the normal
state of affairs. A man, for example, goes to work because he
perceives more advantages for himself if he does so than he would get
if he did not work. The rewards for such an endeavor as employment
should include (1) money in an amount commensurate with the work that
the man does; (2) prestige and respect , consisting of forms of praise
and reinforcement for the job that the man does, both from his
organization and from his family, serving the purpose of letting the
man know that his work is important to-the organization and beneficial
to society; (3) personal growth , fostered by the exposure to new
people and new situations, and to training and educational opportunities
in the organization; (4) freedom from the threat of boredom , providing
a useful way to fill the hours of the day and making use of the man’s
full capabilities; (5) identification of his role in society as worker,
constructive member of society, taxpayer, and so on. At least this is
the way that we commonly expect It to be; and this is the way that It
should be for all workers.
The foregoing scenario does not seem to reflect the state of
affairs that was found in this study of wastewater collection systems
and the personnel employed there. The reasons for this deviation from
the norm are important to investigate and remedy, for this concerns
not just the wastewater collection of today, but one of the most
important weapons in the country’s arsenal against pollution both for
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today and for tomorrow. Several problems came to light in the
course of this survey of ten (10) wastewater collection systems.
One of the major problems is presented by the unfilled job
openings, which require that the management devise a successful means
of recruiting qualified personnel needed in the organization. Another
major problem is caused by the difficulty in holding employees already
on the payroll. The retention of workers in the industry is hurt by
the same forces that make recruitment such a demanding job. These
forces include: (1) the lack of career ladder information for every
employee when he be gins work; (2) the distasteful nature of the
material dealt with in the wastewater collection system; (3) the lack
of public esteem for wastewater workers-; (4) the low rate of unemploy-
ment in the sample cities; (5) the lack of adequate or competitive
monetary compensation; and (6) the lack of appeal of wastewater
collection work for the well—educated recruit that management needs.
These deficiencies are not overcome by the advantages and benefits
of wastewater collection work for the nonsupervisory personnel until
they have been on the job for three or more years. By then, the men
are older and thus considered less mobile and less likely to be able
to start again in another industry. They are also entitled to more of
the benefits, including promotions, pay raises, paid vacation,
longevity pay, and paid sick leave. Such employees have these and other
benefits that provide rewards for a job well done and help to boost
their morale.
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The nonsupervisory personnel with fewer than three years of
experience are less fortunate. The amount of reinforcement that they
receive must be supplemented by management. If the morale of the men
were kept high, the rates of absenteeism and turnover could be reduced.
Preventive maintenance, such as praise for the newer worker, can pay
off in less need for emergency measures in the f on of massive
recruitment drives. An important source of praise and information is
the pollution fight. Workers should be made aware of the crucial job
that they do for themselves, the organization, and the community as
members of a wastewater collection team. They should be placed on jobs
for which they are best suited and assigned tasks which clearly
indicate that they are being utilized in a meaningful way.
The treatment of the wastes that he creates has been a constant
concern of man since the time that he could no longer depend on the
earth to provide a convenient dumping ground, and the oceans to
provide an unlimited cesspool, foUr the enormous amount of refuse that
threatens to engulf him. It is hoped that this study will serve as
an aid in improving present and future operations and the working
environment as they relate to the important human resources in
wastewater collection systems.
FINDINGS
The most significant findings from this research are as follows:
1. Although supervisory personnel in the cities surveyed say
that written career ladders are available, such career
information is not available in usable form.
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2. Unfilled budget positions are due for the most part to
(1) lack of qualified applicants; (2) apathy or unwilling-
ness of present employees to try to qualify for these
jobs which would represent upward mobility for them; (3)
failure on the part of some managements to advertise
vacancies to current employees and to the general public;
(4) lack of equipment for same of the positions; and (5)
the prevailing attitude of some supervisors that the
unfilled budget positions are “too good” for present employees.
3. Instead of matching employees to the positions for which
they are hired, based on sound job descriptions and
specifications, many supervisors place subordinates on jobs
that need to be done without regard to the subordinates’
qualifications in some instances; and without regard to the
fact that the subordinates may have, during their time of
service with the system, acquired skills that would qualify
them for much better positions.
4. Retention of personnel through promotions is practiced, but
not as widely as it should be. Vertical advancement for
educationally disadvantaged workers Is limited because (1)
the nature of a higher job may require a greater degree of
formal education or skill than they possess; (2) workers
are afraid that higher positions on the career ladder will
carry more responsibility than they are willing or able to
cope with; or (3) managers are not as alert as they should
be in evaluating worker potential and providing that extra
“push” that some employees need.
5. On—the—job training, when properly planned and executed, is
an excellent method of training workers. In most of the
wastewater collection systems surveyed, however, on—the—job
training is a misnomer. Most of the programs offer
instructions for emergency, not preventive, maintenance.
6. The greatest problem of turnover in wastewater collection
systems lies with new recruits and employees who have been
on the job for less than three years.
7. Despite their favorable responses to questions concerning
morale and job satisfaction, it is obvious that workers are
not content with their jobs since they are continuously
seeking better ones.
8. Not only must the public’s view of wastewater collection be
changed, but the workers ’ attitude must be changed also. In
order for wastewater collection personnel to develop more
appreciation for their jobs, they need to perceive the big
picture that surrounds those jobs. The study shows that
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workers have insufficient knowledge of their mission as
active participants in the war against water pollution——
what it is and what is being done to combat it.
RECOMMENDATIONS
The recommendations listed below are not all inclusive. They are
suggestive for those systems where problems associated with recruitment,
retention, and utilization of wastewater collection personnel are
apparent. It is believed that decision makers in each municipality
should determine for themselves the procedures that will provide the
most satisfactory results for the system and for the personnel.
Recruitment
1. The prestige of the job should be raised in order to make
potential candidates easier to recruit. This can be
accomplished through a massive public relations program
which uses the media; simultaneously educating the public
while attracting prospective job applicants.
2. Wastewater collection recruiters should make public appear-
ances, informing potential candidates of the different
benefits and opportunities offered by the system. Public
appearances could be made during high school career days
and supplemented through recruiting stations, filmstrips,
and job information handouts. Satisfied employees can
also participate in the recruiting process.
3. Job descriptions and specifications should be detailed enough
for workers to know what will be expected of them. The
description should portray the exact responsibilities, skills,
physical requirements and knowledge needed for the successful
execution of identified tasks. A complete picture should
be presented. For example, the description should tell what
the worker does, how he does it, the type of effort required,
and the machines, tools and equipment used in performing the
duties.
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Retention
1. Written career ladder information should be available to
the work force so they can know the different promotional
levels in the wastewater collection system, and what they
themselves must do to get promoted. If used objectively,
career ladders will help to assure more upward mobility.
2. Morale of the work force must be improved. Before each man
can become dedicated to his job and to his coworkers, he
must have a sense of purpose and confidence in himself.
Apparently this has not been attained. Greater efforts must
be made to convince employees that their jobs are important
to the total organization. This responsibility must be
shared by management and the workers. Each man should have
the feeling that he is part of a system. Suggestion boxes
permit the flow of ideas that some workers may be reluctant
to express orally. Lectures, informal discussions, or pep
talks by supervisors and top management will be helpful at
both the city and state level.
3. Employees must be periodically reassured that they are in the
right line of work. They applied for the job because they
were in need of work. Now that they are with the system,
they must be given valid reasons to stay. Their treatment
should be better than that of an underdog. More advanced
equipment, better working conditions, adequate salary increases
and fringe benefits should be supplied.
4. Respect from the public is also needed. A public relations
campaign would make the public more aware of the pollution
crisis and the contribution that wastewater collection
workers make in the fight against pollution. Television
commercials would help to gain public understanding; showing
the workers as ecologists instead of men with dirty jobs.
5. A careful study should be conducted at the city, state, and
regional levels for the purpose of comparing fringe benefits
and salaries in wastewater collection systems. Such a study
would show to what extent significant differences exist in
pay scales and fringe benefits among cities in the same
state, among states in each region, and among regions in the
nation. It is expected that significant differences exist.
Utilization
1. Job evaluation is an important factor in any organization. If
the employee is not handling his job well, a constructive
interview will help to solve the basic problems. During the
interview, the worker should be told of his job performance.
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If he is not doing satisfactory work, he should be told what
he needs to do to correct his deficiencies. On the other
hand, if he is performing satisfactorily, he needs to be
informed that his efforts have not gone unnoticed and that
he is an asset to the team.
2. Training should be available to the employees. After they
have obtained the job, there should be opportunities for
training that will enable them to qualify for further
advancement up the career ladder and to gain higher salaries.
Training opportunities could be provided on the job, or
time could be allotted to the employees to participate in
the programs at nearby institutions, both at the high school
and at the college level. If the wastewater collection
system does not have sufficient funds, men should be
encouraged to take courses at their own expense. This will
keep the work from growing less interesting to the employees
and reduce the turnover rate at the same time.
General
1. Orientation or Induction sessions should be offered daily
during the new recruits’ first week at work, in order to
introduce the men to their fellow workers and to the job
itself. Thereafter, since the turnover rate is high among
beginning laborers in wastewater collection systems, a
meeting should be held one or two times per month either to
voice some of the existing complaints or to serve as a
preventive tool. For example, a question—and—answer period
affords an opportunity for supervisory and nonsupervisory
workers to exchange views, and it permits management and
labor to set common goals.
2. A large number of the wastewater collection workers are
members of minority and other educationally disadvantaged
groups. They hold many of the lowest level jobs. To deal
effectively with this imbalance, more minority and educa-
tionally disadvantaged personnel should be given additional
opportunities to qualify for, and to occupy, some of the
upper level positions in wastewater collection. These workers
must be willing to express their interest in, and their desire
to qualify for, advancement.
3. Management should do more than it has done in the past to
remind all workers that better jobs are available, that the
municipality needs them, and that it wants them to advance
and remain with the wastewater collection system.
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III. METhODOLOGY
Methodology for the project followed accepted personnel guidelines
set forth in current literature in the field. The staff formulated two
questionnaires——one for supervisory or managerial personnel and one for
nonsupervisory personnel. Both questionnaires were designed to elicit
a wide range of information on recruitment, retention, and utilization
practices in the wastewater collection system. Contacts were made to
selected city officials by telephone and by letter for permission to
include their municipalities in this project.
Another questionnaire for all personnel consisted of mission—
oriented questions, and it was used in six (6) of the cities in the
study. If wastewater collection personnel are going to develop more
appreciation for their jobs, they need to know the big picture that
surrounds those jobs. This phase of the study evolved as the staff
researched the water and management literature. To provide further
background, the staff viewed three free—loan films from the National
Audio—Visual Center, Washington, D. C.; namely, (1) The Gifts, (2) A
Question of Values, and (3) The First Pollution.
The question of morale and worker attitude toward the job is
interwoven with the ultimate needs to be served and goals to be
obtained. Workers say that they consider their jobs important to the
total organization, that they understand what they are doing, and that
their jobs are meaningful to them. If this be true, then knowledge of
their mission as soldiers in the war against water pollution——what it
is and what is being done to combat it——should form a basis for workers
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to have a better understanding not only of their jobs, but also of
their roles in those jobs. The benefits to be derived can affect
supervisory and nonsupervisory personnel, plant efficiency, and
society in general. Table 3 (Pagel7 ) reveals responses to some of
the mission—oriented questions. These responses indicate that the
majority of the workers are not aware of the relationship between their
jobs and water pollution control.
The investigators conducted personal interviews with wastewater
collection employees in eight (8) cities and used mail questionnaires
in two (2) cities. They interviewed personnel at all levels in the
organizational structure to determine the types of managerial concepts
in operation and the extent to which these concepts are effective in
recruiting, retaining, and utilizing the talents of employees. Actual
measurement of worker productivity was outside the scope of this
project. Table 4 (Appendix A) shows responses from supervisory
personnel. Table 5 (Appendix B) lists responses from nonsupervisory
personnel. Recommendations have been made for changes, where needed,
including career ladder information and personnel evaluation practices.
Although the in—depth interview was not used in all cases, it
would have been preferred for all of the cities for the following
reasons:
1. Mailing questionnaires to respondents does not insure 100
percent response.
2. More information can be obtained from the respondents in
person than by mail.
3. The personal approach also enables investigators to complete
the project more nearly on schedule. Responses by mail have
a higher probability of being returned late, or not at all.
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In order to accomplish the goals set forth in the original project
proposal, the following personnel were required:
1. Principal Investigator and Project Director
2. Technical Director
3. Research Assistant (four months full time)
4. Research Assistant (four months part time; one month full time)
5. Research Assistant (two months full time)
6. Secretary (part time)
7. Twelve (12) students to assist with interviews on a one—time—
only basis
The study started in January, 1974, and was completed in seven
months. The data collection period took three months. This included
the literature search and the physical acquisition of data. The
analysis and compilation phase took two months. Final revisions and
presentation covered two months.
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TABLE 3
MISSION—ORIENTED QUESTIONNAIRE RESPONSES*
UESTION
SUPER-
VISORY
NON-
SUPERVISORY
CONCLUSION
What specific actions are being taken
Most workers do not know what
by your agency to overcome water pollution?
specific water pollution control
actions are being taken by their
Checking pipes and lines 7
Analyses of lake and water streams
19
agency.
Additional treatment facilities
exist
or are planned
10
15
Don’t Know
5
63
No Response 3
Is the problem of water pollution being
dealt with as a problem of the present
3
Although a large number feel water
pollution is being dealt with as a
or of the future?
problem of the future, the majority
see it being handled as a problem
Present
13
52
of the present.
Future
10
45
Both 2
Is it possible for us to have either
employment or clean environment, but not
both?
- 3
Most workers think it is possible
to have jobs and clean environment
at the same time.
Both
15
59
One or the other
6
38
Don’t Know
2
No Response
2
3
-4
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TABLE 3—-Continued
QUESTION
SUPER-
VISORY
NON-
SUPERVISORY
CONCLUSION
Are you aware of any state or federal
Most workers are not aware of
programs to help solve environmental
state or federal programs to
problems?
help solve environmental
problems.
Yes
13
15
No
12
83
No Response
2
Have any training programs been
If any training programs have
established to help employees combat
been established, the majority
pollution at work and in their
of the workers do not know about
communities?
them.
Yes
10
15
No
15
85
*Responses from 25 Supervisory and 100 Nonsupervisory Interviewees in Cities A, B, C, D, E, F.
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IV. RECRUITMENT
OVERVIEW
After a manager has determined the need to fill a vacancy—-
either because someone has quit or a new position has been created——
he must recruit applicants and select a person who possesses the
skills and abilities needed for the job. Even though the manager
is interested in a person to fill a specific vacancy or a newly
created position, it is wise for him to think of hiring the applicant
for a career rather than simply filling the specific position.
There are many methods of recruiting applicants and several
sources from which applicants may be attracted. Before an organization
begins recruiting applicants actively, it must consider the most
likely source of the type of worker it needs. Some organizations try
to develop new sources, while others simply attempt to be more
successful with the sources they have always used.
The most obvious source for non—entry-level jobs is personnel
already employed by the organization. This source is used by many;
but a large number tend to overlook their nonsupervisory employees,
especially for managerial jobs. It stems from the fact that some
managers regard their nonsupervisory workers as having no self—
motivation and ambition, or as being basically lazy and holding their
present jobs only because they must earn a living. Other sources of
applicants are considered external to the agency. These may be new
entrants to the labor force; unemployed persons; dissatisfied or
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underutilized employees; retirees; and others not currently in the
work force, such as servicemen or former inmates of correctional
institutions.
Methods of recruiting may be either indirect or direct. The
most frequently used indirect method of recruiting is advertising in
newspapers, journals, magazines, and on radio and television. One of
the widely applied direct approaches is the use of recruiters.
Organizations should evaluate their methods of recruiting and their
sources of applicants periodically. Persons responsible for recruiting
should strive diligently to improve their methods of attracting
applicants. They can accomplish this by participating in high school
career day programs and by cooperating with various employment agencies
in nearby cities and towns. The recruiters should explain job
opportunities in wastewater collection systems, and use films,
brochures, newspaper, radio, and television commercials to “sell” the
wastewater collection system to prospective employees.
THE STUDY FINDINGS
Recruitment is one of the problems confronting wastewater
collection systems. Because of the nature of the job and the fact
that all budgeted positions have not been filled in some cities in the
study, serious burdens have been imposed on management in its attempts
to meet employment needs. Unfilled budget positions are due for the
most part to (1) lack of qualified applicants; (2) apathy or unwilling-
ness of present employees to try to qualify for these jobs which would
represent upward mobility for them; (3) failure on the part of some
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managements to advertise vacancies to current employees and to the
general public; (4) lack of equipment for some of the positions; and
(5) the prevailing attitude of some supervisors that the unfilled
budget positions are “too good” for present employees.
While employees should be matched to the job they are hired to do,
they should also be informed and encouraged to develop those skills
which will enable them to qualify f or better jobs. Although both
supervisory and nonsupervisory personnel state that this procedure
is followed in wastewater collection, prevailing conditions suggest
that the opposite is true. In other words, supervisors are concerned
with having jobs completed on time, so they assign subordinates to
those jobs that need to be done without regard to qualifications in
every instance; and without regard to the fact that the subordinate
may have, during his time of service with the system, acquired skills
that would qualify him for a much better position.
Job descriptions and specifications, though inadequate and too
general in most cases, have been prepared. The purpose of job
descriptions is to describe the responsibilities, skills, and knowledge
a worker needs for the successful execution of all tasks assigned to
him. These descriptions also include information on aptitudes,
interests, temperament, physical demands, and working conditions. Such
tools can aid management in recruiting the best available candidate
for the vacancy that exists, and they can be used in promoting current
employees. Job descriptions and specifications must not be used by
management to the disadvantage of present workers.
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Wastewater collection systems use a number of recruitment
techniques which are in keeping with modern personnel approaches.
Interviewing, testing, letters of recommendation, brochures, and
policy manuals are used in varying degrees. The personnel departments
do some recruiting by displaying posters that announce job openings
or promotion opportunities. However, their efforts through these means
do not meet with much success. Because of this lack of success with
recruitment, management is receptive to any potential candidate.
Lower level jobs are often filled by individuals who walk in and
request employment, or by friends or relatives brought In by current
employees. Yet, this approach, easy though it is, does not remove the
problems of recruitment in wastewater àollection.
Another factor contributing to the recruitment problem is the
generally low unemployment prevailing in the regions surveyed. In
City B, for example, the unemployment rate is only 1.5 to 2 percent.
These figures indicate that potential candidates for employment at a
wastewater collection system can also find work elsewhere. Until the
prestige of the job is raised and the public view——that employees at
such a system are as undesirable as the substance with which they deal——
is changed, potential long—term employees will continue to be difficult
to recruit. This is true because prospective and current employees
are attracted to higher paying jobs in the construction industry or to
positions in such utility organizations as gas, water, electric, and
telephone, which have more prestige than low—level jobs in wastewater
collection systems. The same program of recruitment, morale boosters,
and public Information programs will increase public esteem.
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23
RECOMMENDATIONS
Recruitment
1. The prestige of the job should be raised in order to make
potential candidates easier to recruit. This can be accom-
plished through a massive public relations program which
uses the media; simultaneously educating the public while
attracting prospective job applicants.
2. Wastewater collection recruiters should make public appearances,
informing potential candidates of the different benefits and
opportunities offered by the system. Public appearances
could be made during high school career days and supplemented
through recruiting stations, filmstrips, and job information
handouts. Satisfied employees can also participate in the
recruiting process.
3. Job descriptions and specifications should be detailed enough
for workers to know what will be expected of them. The
description should portray the exact responsibilities, skills,
physical requirements and knowledge needed for the successful
execution of identified tasks. A complete picture should be
presented. For example, the description should tell what the
worker does, how he does it, the type of effort required, and
the machines, tools and equipment used in performing the
duties.
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24
V. RETENTION
OVERVIEW
Retaining workers on the job covers those activities which serve
to support their skills and attitudes, such as adequate wages and
working conditions, supervision, grievance procedures, job enrichment,
job enlargement, recreational and social programs. Job performance
Is dependent not only upon the abilities and skills of employees but
also upon their motivation.
An understanding of the motivational process, including a
recognition of the needs that individuals have, is essential for
effective personnel management. Through an understanding of needs,
it is possible to determine the incentives that should be used and the
proper motivational climate that should be attained. While each
worker has his own need pattern, managers must have a general under-
standing of some of the possible causes of frustration. Some of the
causes may include (1) inadequate pay, (2) changing technology,
(3) changing working conditions, (4) insignificance of the job, (5)
lack of status, prestige, or recognition, and (6) unfulfilled expec-
tations on the part of the employees. In wastewater collection
systems, changing technology is not yet a source of frustration
because technology, a relatively recent addition, makes the job more
interesting and gives some workers a feeling of being skilled.
One classification of needs that is widely accepted comes from the
late A. H. Maslow,’ a psychologist who developed a hierarchy of human
LA. H. Maslow, Motivation and Personality , 2nd ed. (New York:
Harper and Brothers, 1970), pp. 35—58.
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25
motivation. He classifies human needs into five categories; namely,
(1) the physiological needs——food , water, air, rest, and the like;
(2) the safety needs——physical and psychological safety and security;
(3) the belongingness and love needs——attention , social activity and
affectionate relationships; (4) the esteem needs——the desire for
self—respect, achievement, reputation, prestige, or respect from other
people; and (5) the need for self—actualization or self—realization— —
desire for self—fulfillment or to become everything that one is
capable of becoming.
An employee’s retention is dependent upon his satisfaction with
work on the present job, pay for the job, fringe benefits, fairness in
opportunities for promotion, training and educational provisions,
supervisors on the job, and interpersonal and group relations with
other members of the labor force. Effective channels of communication
and grievance procedures are essential for a smooth running organi-
zational structure.
THE STUDY FINDINGS
Retention of employees is another major problem in wastewater
collection systems. The current low unemployment rate, that creates
such a problem in recruitment, plays a disastrous role in retention
also. Anyone interested in a job is hired to occupy employment
vacancies that exist. Since unemployment is low, the number of
persons available for employment is correspondingly low. The lack or
reduction of preventive maintenance and the overwork of the men,
coupled with whatever success can be achieved in the recruitment of
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26
replacement workers, absolve management of some of the worry of
worker turnover. This does not, however, free management of its
responsibility to find solutions to the problem.
Career Ladders
Although written career ladder information is claimed to be
available by supervisory personnel, it is not available In usable
form in most of the cities surveyed. This is a management shortcoming.
Every individual on any job should have written information presented
to him, outlining all of the promotions for which he may qualify.
If a worker cannot read well, but can do an effective job otherwise,
someone in authority should read and explain the information to the
worker, making certain that he understands it. Such information
serves as a stimulus towards retention of the work force.
The Career Lattice for a Wastewater Collection System by Namour, 2
shown in Figure 1, is an example of the type of job mobility about
which potential and current employees should be informed. While all
of these positions are not found in every wastewater collection
system, because of the size of the various systems, cities, and towns,
they can serve as guidelines for the development of adequate career
ladder diagrams.
2 Elie Naniour, Manpower Requirements for Wastewater Collection
Systems in Cities and Towns up to 150,000 In Population (Washington,
D. C.: Manpower Development Staff, Office of Water Program Operations,
U. S. Environmental Protection Agency, June, 1973), p. 27.
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FIGURE 1
CAREER LATTICE FOR A WASTEWATER COLLECTION SYSTEM
* *
ENTRY SOURUt:
SEMI SKILLED LABOR POOL
GENERAL PUBLIC
TECHNICAL INSTITUTION GRADUATE
* Position available only in system
** Position available only in system
Position available only in system
Position available only in system
UNSKILLED LABOR POOL
GENERAL PUBLIC
over
over
over
over
100,000 in population.
50,000 in population.
25,000 in population.
.10,000 in population.
p 3
-. 4
Source: Elie Namour, Manpower Requirements for Wastewater Collection Systems , p. 27.
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28
Promotion
Retention of personnel through promotions is practiced, but not
as widely as it should be. Whenever possible, individuals are
advanced along the career ladder vertically and laterally. For many
of the educationally disadvantaged workers, however, vertical
advancement is limited because (1) the nature of a higher job may
require a greater degree of formal education or skill than these
employees possess; (2) workers are afraid that the higher position
will have more responsibility than they are willing or able to cope
with; or (3) managers are not as alert as they should be in evaluating
worker potential and providing that extra “push” that some workers
need. This presents a challenge to wastewater collection system
management and to disadvantaged workers, which both groups should
accept. The challenge to management is that it must provide educa-
tional and skill development opportunities as well as encouragement
to employees. The challenge to workers is that they must overcome
fear and take advantage of all opportunities——those financed by the
wastewater collection system and those which they may have to pay
for themselves.
Workers feel that a promotional policy exists and that there are
opportunities for advancement. Except for City E, a majority of the
workers have had at least one promotion; some of them have had up to
three promotions. Promotions are primarily based upon merit. Other
things being equal, seniority is taken into consideration. This is
another mechanism of retention which applies to most members of the
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29
wastewater collection team except the new workers who have been on
the job for less than three years.
Posters announcing job openings which explain in detail the
education and training needed by an applicant to qualify for the job
and give the salary for the position, serve as aids in the retention
of workers. The practice of keeping employees Informed also indicates
that workers have the chance to seek promotion to the managerial
level in the organization, when qualified In terms of education and
training. In City B, the Superintendent of Pipes has gradually
risen from the lowest rung on the career ladder to his present
position. It must be stated, however, that there are not enough
examples of this success story. -
Education and Training
Employees are trained on the job. When properly planned and
executed, this is an excellent method of training a worker. In the
case of wastewater collection systems, however, the purpose is
sabotaged by the negative attitude exhibited toward It by the laborer.
One explanation for this attitude is that on—the--job training is a
misnomer in wastewater collection systems. Few serious training
programs are offered. Most programs involve instructions for emergency,
not preventive, maintenance.
In the survey, however, the workers say they are interested in
enrolling in educational or training programs in order to qualify for
advanced positions. A move in this direction by a worker could help
to alleviate the problem of retention faced by management. By
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30
improving his own mental prowess and by investing time (and perhaps
money) in upgrading his ability to do his job, an employee would be
more likely to stay on the job to see his labor bear fruit in the form
of promotions and pay raises.
Compensation and Fringe Benefits
Another incentive aiding in the retention of workers is an
increase in wages. Although this is a short—term gain, it is more
tangible than many of the fringe benefits; and as such, it is very
meaningful to the personnel involved in wastewater collection. Like
promotions, this mechanism of retention does not operate well f or
the new recruit. Perhaps if the new worker were given smaller raises
at more frequent intervals, he would receive reinforcement for -
proper employee behavior, and he would be more inclined to stay on the
job until eligible for some of the fringe benefits.
Inadequate compensation is certainly a big factor in the problem
of retention in wastewater collection. Sixteen supervisors in the
study say compensation is adequate; fifteen say it is inadequate.
Supervisory personnel admit, however, that if it were not for the poor
rate of compensation, the incidence of excessive turnover would be
greatly reduced. They also indicate that the wage structures in
wastewater collection systems are competitive with those of similar
agencies within their respective states and regions. The same
individuals feel that wages are low, when compared with other industries;
thus contributing to the high turnover rate. This contention of
supervisory personnel is supported by the nonsupervisory workers, who
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31
say that many of their coworkers quit their jobs because of inadequate
monetary rewards and dirty or undesirable working conditions.
Factors that play an important role in retention, and which are
weighed very heavily by an employee when accepting a job, are the
n miber, kind, and timing of fringe benefits he can receive. These
benefits serve as a redeeming feature of the personnel program in
wastewater collection systems. A list of the fringe benefits includes:
health and life insurance, retirement, paid vacations, paid holidays,
longevity pay, uniforms, fees for education, paid sick leave, jury
leave, credit unions, laundry services, and rain apparel.
Unfortunately, the fringe benefits do not help as they would be
expected to do in the retention of employees in wastewater collection
systems. There are employees who are of the opinion that health
(hospital and casualty) insurance, one of the benefits, is inadequate.
Except for this complaint, the overall bet efits seem to satisfy the
workers; but only after they have been on the job from three to five
years do the benefits appear to have a major influence on retention.
Morale
Morale has many different connotations. As seen by McFarland, 3
morale is a state of balance and health within an organization in
which those who take part in it view the total situation with favorable
attitudes. McFarland further suggests that the executive needs to
recognize his own influence on the patterns of morale prevailing in
the group, or a significant part of the group, with which he is working.
3 Dalton E. McFarland, Management Principles and Practices , 3rd ed.
(New York: The Macmillan Company, 1970), p. 514.
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32
Haiinann and Scott 4 view morale as a group feeling which results in
intense goal—directed effort. This feeling is caused by the perception
of group members that share to a high degree similar values about the
accomplishment of a worthwhile objective.
The majority of supervisory and nonsupervisory personnel in the
study say morale of the work force is very good. The incidences of
absenteeism, turnover of laborers, and poor working conditions, among
others, do not coincide with their glowing responses. Individual
goals should not be submerged in favor of organizational goals. Rather,
organizational goals and individual goals should harmonize. This
approach would result in the worker’s receiving satisfaction as a
member of the wastewater collection team.
Morale, absenteeism, and turnover are interdependent. As long
as employees know that they are needed, respected, and feel that their
grievances receive a fair hearing, they have more job satisfaction.
It is important, therefore, for supervisors to provide recognition
and praise to wastewater collection system personnel for their
worthwhile accomplishments——not only because the job has to be done,
but also because the workers have chosen to remain on the job.
Communication
If one accepts the opinions of the interviewees, one gets the
impression that many of the workers are operating in a team—like
fashion, offering suggestions and ideas to supervisors and to fellow
4 meo Haimann and William C. Scott, Management in the Modern
Organization (Boston: Houghton Mifflin Company, 1970), pp. 417—418.
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33
workers. If true, this would indicate a wholesome work environment.
Most men say that communication between supervisory and nonsupervisory
workers is flexible. This, too, is open to question because some of
the nonsupervisory interviewees (1) were reluctant to answer questions;
(2) spoke in low tones that were almost inaudible to the interviewers
because they did not want even their coworkers to hear them; or (3)
wanted to know If their responses would be reported to their supervisors.
To the question, “Do you completely enjoy your work?”, the
workers respond in the affirmative. For the questions, “Are the rules
too strict for you to do your job as you think you should?” and “If
the choice were yours to make, would you want to change supervisors?”,
the majority reply in the negative. The workers also indicate that
they consider their jobs to be Important to the total organization.
It Is apparent that these are not completely candid responses and that
the men feel that their truthful replies may get them Into trouble
with the supervisors. Despite the favorable responses, it is obvious
that workers are not content with their jobs since they are contin-
uously seeking better jobs.
In order to improve the retention of wastewater collection
workers, it is essential to determine the basic causes of the problem.
The overriding concerns seem to center around the need for better
working conditions, more advanced equipment, an increase in pay
commensurate with services rendered, more respect from the public,
and expanded hospitalization benefits. These are the most prevalent
reasons cited for men leaving their jobs. Open channels of communication
between supervisory and nonsupervisory personnel enable management to
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34
find out other reasons as well as what is needed to accomplish the
goals of the organization without neglecting the goals of those
individuals who labor in that organization.
Absenteeism
Investigation of the subject of absenteeism reveals that
management, except in Cities E and C, feels that absenteeism is low.
Low absenteeism has been defined, for the purpose of this study, as•
the absence of an employee from his job an average of once a week or
less. Various factors are listed by the supervisory personnel for
the low incidence of absenteeism such as interest in the job, the
need of the worker to earn a living, good supervision, and working
environment. In the cases in which high absenteeism is mentioned by
supervisory personnel, the most common cause is hangover. Other
reasons listed are: the dirtiness of the work, the laziness of
workers, the attempt by the workers to use their sick leave up as
soon as possible, and calling in ill while actually looking for
another job.
Nonsupervisory personnel advance different reasons for their
absenteeism which according to most of them also is low. The reasons
are sickness, personal business, hunting for better jobs, and
hangovers. Nonsupervisory workers who say absenteeism is high attri-
bute such absences to Monday morning headaches, the need for a longer
weekend, the need for a more exciting job, personal business, or just
being tired of doing the same type of work day after day.
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35
Turnover
When a position is filled, it does not remain so for long. The
recruited individual is constantly hunting for a more lucrative job.
Once he can locate one that will increase his prestige, personal
utility, and monetary benefits, he leaves wastewater collection. The
long—term benefits to be derived from remaining in wastewater
collection are satisfactory, but very few of the new recruits are able
to grasp the promise of the benefits of the future as an incentive to
continue the work of today.
In regard to the retention of a work force of an organization,
a natural question arises, “Is the turnover rate a normal one for the
industry?” This question receives both affirmative and negative
answers in wastewater systems surveyed. Such a dichotomy exists
because of the apparent split in the work force along the seniority
boundary. Individuals who have been on. the job for three to five
years or more are considered relatively permanent members of the work
force. Because of this, the high turnover rate seen in many of the
cities is not typical of their situation. In Cities B and C, the
turnover rate is 100 percent or above. It is typical, however, of the
situation of the new recruit. Those who have been members of the
work force for fewer than three years are relatively unstable; this
group is the primary cause of the high turnover rate in the industry.
The old workers stay because they are receiving the pay raises and the
fringe benefits; the young ones leave because they do not as yet have
the seniority to receive adequate compensation. If workers do not
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36
feel trapped and unsatisfied, the turnover rate for the wastewater
collection system should be lower than it is today.
Emphasis has been placed on the status of new employees because
the people who have been on the force for three to five years and
above are those who may have made their decision to remain in waste—
water collection work as a lifetime career. New recruits, therefore,
pose a larger problem in terms of retention. This is not to say that
nothing should be done for the retention of the older worker; it is
to say that any mechanisms instituted for the purpose of retaining new
workers would also aid in the retention of all workers, including the
older ones.
RECOMMENDATIONS
Retention
1. Written career ladder information should be available to the
work force so they can know the different promotional levels
in the wastewater collection system, and what they themselves
must do to get promoted. If used objectively, career ladders
will heip to assure more upward mobility.
2. Morale of the work force must be improved. Before each man
can become dedicated to his job and to his coworkers, he must
have a sense of purpose and confidence in himself. Apparently
this has not been attained. Greater efforts must be made to
convince employees that their jobs are important to the total
organization. This responsibility must be shared by manage-
ment and the workers. Each man should have the feeling that
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37
he is part of a system. Suggestion boxes permit the flow of
ideas that some workers may be reluctant to express orally.
Lectures, informal discussions, or pep talks by supervisors
and top management will be helpful at both the city and state
level.
3. Employees must be periodically reassured that they are in
the right line of work. They applied for the job because they
were in need of work. Now that they are with the system, they
must be given valid reasons to stay. Their treatment should
be better than that of an underdog. More advanced equipment,
better working conditions, adequate salary increases and
fringe benefits should be supplied.
4. Respect from the public is also needed. A public relations
campaign would make the public more aware of the pollution
crisis and the contribution that wastewater collection
workers make in the fight against pollution. Television
commercials would help to gain public understanding; showing
the workers as ecologists instead of men with dirty jobs.
5. A careful study should be conducted at the city, state, and
regional levels f or the purpose of comparing fringe benefits
and salaries in wastewater collection systems. Such a study
would show to what extent significant differences exist in
pay scales and fringe benefits among cities in the same state,
among states in each region, and among regions in the nation.
It is expected that significant differences exist.
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38
VI. UTILIZATION
OVERVIEW
I
Utilization is concerned with the working effectiveness of the
employees. It may involve such areas as job descriptions, job
specifications, job placement, job evaluation, morale, communication,
motivation, discipline, grievances, salary, health service, and
programs of safety, recreation, social, and athletic activities.
Transfers and promotions assist an organization in increasing its
effectiveness and in attaining its service and profit objectives.
When an employee is placed in a position in which he can be more
productive, chances for successful results by the organization for
which he works are increased also. It should be the goal of every
agency, therefore, to transfer or promote employees as soon as their
capabilities increase and job opportunities become available.
Further, it is important that workers be given the opportunity
to undertake challenging assignments or tasks with added responsibility.
“How are the workers being used?” and “Are they assigned to jobs that
they can do best?” are among the questions that should receive
careful answers.
THE STUDY FINDINGS
There is a shortage of qualified personnel in wastewater
collection systems. Additional men must be introduced into the
system, or trained from within the ranks, so that municipalities can
be prepared for more advanced procedures of wastewater collection that
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39
will deal not only with reacting to emergencies, but the means for
acting , in a positive way on decisions relative to preventive main-
tenance. This has not yet been accomplished in all of the cities
surveyed.
Some of the budgeted positions have not been filled. Thus, the
possibility exists that the work force is overworked; that management
does not do all it can to encourage the promotability of the men
already in the wastewater collection system into higher positions on
the career ladder; and that the training of current employees suffers
in some systems.
Most of the personnel interviewed, both supervisory and non—
supervisory, feel that they are assigned to jobs that they can do best.
They also say that they are being utilized effectively and are able
to complete their tasks quickly and efficiently. In reality, however,
this is not true of all systems. Workers are assigned where they are
needed and not always on the basis of the job for which they are best
qualified. The size of a work crew is determined only partially by
the nature of the job to be done. Because of the complexity or
frequency of the assignments, a number of workers express the opinion
that the size of the total labor force needs to be increased.
Supervisory personnel hold the view that the utilization of the
work force could be improved if better training were used and better
educated people were hired. These moves would have the result of
enabling employees to achieve higher motivation and morale, increased
productivity, better wages, and higher positions. It is reassuring,
however, to hear some supervisors express interest in finding ways to
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40
utilize the workers more effectively. Considering the problems of
ricruitment and retention, the area of utilization of personnel in
wastewater collection systems needs additional study.
R.ECO}iMENDATIONS
Utilization
1. Job evaluation is an important factor in any organization. -
If the employee is not handling his job well, a constructive
interview will help to solve the basic problems. During the
interview, the worker should be told of his job performance.
If he is not doing satisfactory work, he should be told
what he needs to do to correct his deficiencies. On the
other hand, if he is performing satisfactorily, he needs to
be informed that his efforts have not gone unnoticed and that
he is an asset to the team.
2. Training should be available to the employees. After they
have obtained the job, there should be opportunities for
training that will enable them to qualify for further
advancement up the career ladder and to gain higher salaries.
Training opportunities could be provided on the job, or time
could be allotted to the employees to participate in the
programs at nearby institutions, both at the high school and
at the college level. If the wastewater collection system
does not have sufficient funds, men should be encouraged to
take courses at their own expense. This will keep the work
from growing less interesting to the employees and reduce the
turnover rate at the same time.
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41
APPENDIX A
SUPERVISORY PERSONNEL QUESTIONNAIRE RESPONSES
RECRUITMENT, RETENTION AND UTILIZATION
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TABLE 4
SUPERVISORY PERSONNEL QUESTIONNAIRE RESPONSES
RECRUITMENT, RETENTION AND UTILIZATION
CITIES
A
B
C
D
E
F
G
H
I
J
TOTAL
RECRUITMENT PRACTICES
What are your recruitment sources?
Within department
5
3
1
3
1
1
14
Personnel department of city
2
7
3
1
4
7
1
25
Agencies
2
1
3
Other: Word of mouth
1
3
3
7
Civil Service
2
1
3
Newspaper
2
2
Rave job descriptions been
prepared for the employees
of your department?
Yes
3
7
3
1
4
1
5
2
1
2
29
No
2
2
What criteria do you use to
determine the size, number
and type of crews you need?
Natureofjob
3
7
3
1
4
1
2
2
1
1
25
Equipment to be used
3
4
2
4
2
1
16
No response
5
1
6
What recruiting methods are used?
Interviews
3
7
3
1
4
1
7
2
1
2
31
Testing
1
3
•
2
6
Letters of Recommendation
1
1
2
1
1
6
Brochures
1
2
3
Policy Manuals
2
1
1
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TABLE 4——Continued
CITIES
A
B
C
D
E
F
C
H
I
J
TOTAL
Which do you consider most
effective?
Interviews
2
7
3
1
4
1
4
2
1
1
26
Testing
1
1
2
4
Policy Manuals
2
2
RETENTION
Compensation:
Are the workers being
adequately compensated?
Yes
3
5
1
4
1
2
16
No
2
3
1
7
2
15
Are salary scales competitive with
similar agencies in this state?
Yes
3
7
2
1
4
1
2
1
2
23
No
1
7
8
Are salary scales competitive with
similar agencies in this region?
Yes
3
7
1
1
4
1
2
1
2
No
2
7
9
Are the workers aware of salary
minimums and maximums?
Yes
3
7
3
1
4
1
6
2
1
2
30
No
1
1
Do they know what they must do
to get a raise?
Yes
3
7.
3
1
4
1
6
2
1
2
30
No
1
1
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TABLE 4-—Continued
CITIES
A
B
C
D
E
F
G
H
I
J
TOTAL
What are some of the fringe
benefits received?
Insurance (Health and/or Life)
3
7
3
1
4
1
3
2
1
2
27
Retirement
3
6
3
4
1
2
19
Vacations
7
3
1
4
1
1
17
Paid holidays
3
6
2
1
4
1
17
Longevity Pay
3
3
4
10
Uniforms
2
4
3
4
13
Education Reimbursement
1
3
3
4
11
SickLeave
3
7
3
1
4
1
2
1
1
23
Others
4
1
5
Promotion:
Do you have a promotion policy?
Yes
2
7
3
1
4
1
4
2
2
26
No
3
1
4
If so, is it a written one?
Yes
2
4
3
1
3
2
2
1
18
No
3
1
1
2
1
8
No response
3
1
4
Do you have written career—
ladder information?
Yes
2
6
3
1
3
2
2
1
20
No
1
1
1
1
5
1
1
11
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TABLE 4—-Continued
CITIES
A
B
C
D
E
F
C
H
I
J
TOTAL
Are workers aware of job
advancement chances?
2
1
2
27
Yes
3
7
3
1
4
4
4
No
Do they know what training or
educational requirements they
must satisfy to qualify for a
better job?
2
2
1
2
25
Yes
2
7
3
1
5
No
5
1
Don’t know
1
Do you have any training and/or
educational programs to prepare
workers for advancement on the job?
1
2
2
16
Yes
7
3
1
1
12
No
4
1
6
3
No response
3
Are workers promoted to the
managerial level?
1
1
2
1
2
24
Yes
3
7
3
1
7
No
1
Are they aware that they can
advance to the managerial level?
4
1
1
2
1
2
24
Yes
2
7
3
6
6
No
-------
TABLE 4——Continued
CITIES A B C D E F C H I J TOTAL
Do you consider seniority
for promotions?
Yes 3 7 3 1 4 1 2 1 22
No 7 2 9
Do you consider merit for
promotions?
Yes 3 7 3 1 4 1 1 2 1 1 24
No 6 1 7
Morale, Absenteeism and Turnover :
Do open lines of communication
exist between management and
the work force?
Yes 3 7 3 1 4 1 3 2 1 2 27
No 4 4
Do workers feel that their jobs
are important to the total
organization?
Yes 2 7 3 1 3 1 7 1 2 27
No 1 1 2
Don’t know 1 1 2
How do you rate the morale of the
work force?
Excellent 2 2 1 l_ 1 7
Good 1 5 1 2 1 1 1 1 13_
Fair 1 1 5 1 1 9
0
Loor a ’
-------
TABLE 4——Continued
CITIES A
B
C
D
E
F
G
H
I
J
TOTAL
Absenteeism of workers is
4
6
1
1
16
High
2
2
1
1
1
1
1
15
Low 3
5
1
1
What are some reasons for high
absenteeism?
4
Monday morning
2
2
1
4
Sickness
3
2
Use up sick leave as fast as possible
2
1
1
Workers lazy
2
2
After—effects of payday
1
3
Dirty work
1
4
1
5
No response
What are some reasons for low absenteeism?
1
1
6
Interest in lob 1
3
1
2
Morale high
1
3
Workers have to earn living 1
1
1
3
Fear of losing job 1
2
1
Good supervision 1
1
1
Sick leave policy
1
6
Noanswer
1
4
What is the turnover rate of the work force?
2
1*
6
0—20% 1*
2
1
2
21—40%
1
1
4
41—60%
3
1
4
61—80%
3
2
7
81 — 100% and above
5
1
2
2
6
Don’t know
l**
* Practically Nil
** Very Low
-------
TABLE 4——Continued
CITIES
A
B
C
D
E
F
G
H
I
J
TOTAL
If turnover rate is high, what
are some reasons?
Typeofwork
2
1
4
1
Hardwork
1
2
1
Payislow
4
1
1
1
7
1
Workers lazy and don’t want to work
1
Others
2
1
1
1
How does the turnover rate in your
department compare with that of
1 or 2 years ago?
1
8
Increased
1
1
2
3
15
Decreased
3
5
1
1
1
4
5
Same
1
1
2
1
2
Don’t know
1
1
1
No response
1
UTILIZATION AND SIZE OF WORK FORCE
Are the workers being utilized
effectively?
2
28
Yes
3
7
3
1
4
1
6
1
No
1
1
1
3
-------
TABLE 4—-Continued
CITIES
A
B
C
D
E
F
C
H
I
J
TOTAL
Recommend ways to improve
utilization of the work force.
More training
2
7
3
1
13
Better educated people are needed.
1
1
1
3
Better equipment
2
1
1
1
5
More supervision needed
1
1
No response
3
1
1
5
2
12
Others
2
2
Are workers assigned to jobs that
they can do best?
Yes
3
7
3
1
4
1
6
2
1
2
30
No
1
1
If yes, how?
Trial and error
3
7
3
1
3
1
2
2
1
1
24
No response
4
4
If you feel the work force should
be increased, list reasons.
Budgeted positions unfilled
2
2
1
5
Heavy workload
2
2
2
6
Expansion of sewer systems
2
1
3
Increase service to public
•
1
1
No response
3
1
1
5
‘ .0
-------
50
APPENDIX B
NONSUPERVISORY PERSONNEL QUESTIONNAIRE RESPONSES
RECRUITMENT, RETENTION AND UTILIZATION
-------
TABLE 5
NONSUPERVISORY PERSONNEL QUESTIONNAIRE RESPONSES
RECRUITMENT, RETENTION AND UTILIZATION
CITIES
A
B
C
D
E
F
G
H
I
J
TOTAL
RECRUITMENT PRACTICES
How were you hired for this job?
Applied for it
12
26
15
10
44
10
5
1
3
126
Through a friend
2
2
2
1
7
Civil Service
2
1
3
What methods were used?
Interviews
14
28
15
10
46
10
5
2
3
3
136
Testing
9
2
3
14
Letters of Recommendation
5
2
1
1
9
Policy Manuals
1
1
Did you have special training
for first job here?
Yes
2
9
3
2
7
5
28
No
12
19
12
8
39
10
2
3
3
108
RETENTION
Compensation:
Do you feel that your salary is
adequate for the duties you
perform?
Yes
5
8
3
7
1
1
25
No
9
20
12
10
39
10
5
1
3
2
111
U’
-------
TABLE 5——Continued
CITIES
A
B
C
D
E
F
G
H
I
J
TOTAL
Do you know what others here
are making for the same job you
are doing?
Yes
0
7
5
3
13
3
3
2
3
3
42
No
14
21
10
7
33
7
2
94
Do you know what other workers
in this state are making for the
same job you are doing?
Yes
1
2
1
4
2
1
2
3
16
No
13
26
14
10
42
10
3
1
1
120
Are your fringe benefits
adequate?
Yes
14
25
14
5
35
5
1
3
1
103
No
3
1
5
11
5
4
2
2
33
Promotion:
Do you feel that a promotional
policy exists here?
Yes
12
22
13
8
39
3
5
2
3
107
No
1
5
2
1
7
6
3
25
No response or don’t know
1
1
1
1
4
J1
-------
TABLE 5——Continued
CITIES
A
B
C
D
E
F
G
H
I
J
TOTAL
Are there ample opportunities
to advance?
Yes
13
25
13
5
37
1
2
2
3
101
No
1
3
2
4
8
9
3
3
33
No response
1
1
2
Have any of your coworkers been
promoted to higher positions?
Yes
12
22
12
5
29
4
3
2
2
91
No
2
6
3
4
16
6
2
3
1
43
No response
1
1
2
Were outsiders brought in for
the jobs that should have gone
to you or your coworkers?
.
Yes
4
6
2
6
2
1
21
No
10
22
13
9
30
10
3
2
2
3
104
No response
1
1
Since working on this job, have
you been offered any training
for skill improvement?
Yes
6
11
7
3
15
1
2
1
3
49
No
8
17
8
7
31
9
5
2
87
Have you had the same job since
you have been here?
Yes
6
9
4
6
25
3
53
No
8
19
11
4
21
7
5
2
3
3
83
U I
-------
TABLE 5——Continued
CITIES
A
B
C
D
E
F
G
H
I
J
TOTAL
How many times have you
had a promotion here?
One
4
14
5
3
14
4
4
1
2
51
Two
2
3
2
1
5
1
1
15
Three
3
3
4
2
2
1
1
3
19
None
3
8
4
6
25
3
49
Do you know what you need
to do for a promotion?
Yes
9
24
13
4
33
2
1
2
3
3
94
No
5
4
2
6
13
8
4
42
Are you interested in moving
to a higher position?
Yes
10
22
11
6
42
4
5
1
3
3
107
No
4
6
4
4
4
6
1
29
Would you be willing to enroll
in training or educational
programs to qualify for
advancement?
Yes
11
21
12
7
42
7
5
2
3
3
113
No
2
7
2
3
4
3
21
No response
1
1
2
U I
-------
TABLE 5--Continued
CITIES A
B
C
D
E
F
G
H
I
J
TOTAL
Morale, Absenteeism and Turnover:
.
Do you completely enjoy your work?
Yes 14
26
15
8
45
10
5
1
2
2
128
No
Is your job meaningful to you?
2
2
1
1
1
1
8
Yes 14
25
15
10
43
10
5
2
3
3
130
No
3
3
6
Do you understand what you are
doing and fully accept the
reasoning behind it?
Yes 14
27
14
10
46
10
5
2
3
3
134
No
1
1
.
2
Does your supervisor create a well—
rounded work environment?
Yes 14
28
15
10
43
10
4
2
2
3
131
No
3
1
1
5
If the choice were yours to make,
would you want to change supervisors?
Yes
6
1
7
1
2
17
No 14
22
14
10
39
9
3
2
3
3
119
Are the rules too strict for you to
do your work as you think you should?
Yes
6
1
1
1
9
No 14
28
14
10
40
9
4
2
3
2
126
U’
U’
-------
TABLE 5—-Continued
U I ’
0%
CITIES
A
B
C
D
E
F
G
H
I
3
TOTAL
Can you perform to the best of
your ability?
Yes
14
27
15
10
46
10
5
2
3
2
134
No
1
1
No response
1
1
If you had any ideas or suggestions
to offer your present supervisor,
would he permit you to express them?
Yes
14
28
10
38
8
3
2
3
3
124
No
8
2
2
12
Do you consider yourself to be
trapped in a routine, unsatisfying
.
and dull job with no way up and no
way out?
Yes
3
1
1
6
2
2
15
No
11
27
14
10
40
8
3
2
3
3
121
How long have you been on this job?
Less than 1 year
8
1
6
10
1
26
1 — 3 years
3
2
1
6
3
1
16
3 — 5 years
4
3
1
6
1
1
1
17
5 — 10 years
2
12
6
18
3
1
42
More than 10 years
5
3
6
4
6
5
2
2
1
34
Are most of your coworkers content
with the job?
Yes
14
26
13
5
41
9
4
1
2
1
116
No
1
2
1
3
1
1
1
1
11
No response
1
4
2
1
1
9
-------
TABLE 5—-Continued
U I’
-4
CITIES
A
B
C
D
E
P
C
H
I
J
TOTAL
Are most of your coworkers
continuously looking for
something better?
Yes
6
24
11
2
19
6
4
1
3
76
No
7
4
4
5
26
3
1
1
3
54
No response
1
3
1
1
6
How often are workers absent
from the job?
1 or 2 times per week
8
2
17
1
1
29
More than 1 or 2 times per week
0
Seldom absent
14
20
13
10
27
9
3
1
3
3
103
What are some of their reasons?
-
Sickness
10
18
8
5
35
7
2
2
2
89
Hangover
9
2
5
1
17
Personal
1
4
2
2
1
2
12
Don’t know
3
4
4
5
4
2
3
1
1
1
28
Do many of your coworkers quit
their jobs?
Yes
1
14
15
1
21
7
1
60
No
13
13
8
24
3
3
2
3
3
72
No response
1
1
1
1
4
If yes, what are some reasons?
.
Want more pay
8
9
18
4
2
41
Want a better job
2
6
5
4
5
22
Present job too hard
3
2
7
12
Present job too dirty
4
1
1
6
Poor management
2
2
1
3
8
-------
TABLE 5——Continued
CITIES
A
B
C
B
E
F
G
H
I
3
TOTAL
Which positions seem to be
vacated most often?
Laborer
10
23
13
4
31
10
3
1
9
Equipment Operator
2
2
2
3
2
Truck Driver
1
1
Don’t know
2
3
6
7
2
1
21_
UTILIZATION AND SIZE OF WORK FORCE
In your opinion, are workers assigned
to jobs that they can do best?
1
121
Yes
14
27
15
10
38
9
4
14
No
1
7
1
1
2
2
Do you feel that there are enough
full—time employees to do the job?
1
66
Yes
13
14
1
31
3
2
70
No
1
14
15
9
15
7
3
2
2
2
Are you and your coworkers able to
complete your assignments quickly
and efficiently?
2
134
Yes
14
28
15
9
46
10
5
2
2
No
1
1
Are your training, education or
-
experience being properly used
on this job?
2
3
122
Yes
14
25
15
10
38
10
3
2
No
3
8
1
1
U’
-------
TABLE 5-—Continued
CITIES
A
B
C
D
E
F
C
H
1
3
TOTAL
Are the training, education
or
experience of your coworkers
being put to the best use?
Yes
14
24
14
7
38
-
9
4
3
116
No
2
4
1
2
9
No response or Don’t know
2
1
3
4
1
11
U,
‘0
-------
60
APPENDIX C
BIBLIOGRAPHY
1. Haimann, Theo and Scott, William C., Management in the Modern
Organization (Boston: Houghton Miff un Company, 1970),
pp. 417—418.
2. McFarland, Dalton E., Management Principles and Practices ,
3rd ed. (New York: The Macmillan Company, 1970), p. 514.
3. Maslow, A. H., Motivation and Personality , 2nd ed. (New York:
Harper and Brothers, 1970), Pp. 35—58.
4. Namour, Ella, Manpower Requirements for Wastewater Collection
Systems in Cities and Towns up to 150,000 in Population
(Washington, D. C.: Manpower Development Staff, Office
of Water Program Operations, U. S. Environmental
Protection Agency, June 1973), p. 27.
5. O’Grady, Joseph F., “Water Utility Managers Need to Communicate
with the Public,” The American City , January, 1974, pp. 52—53.
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