SECTIONS FROM

FORM FOR INVESTIGATING APPLICANTS FOR POSITION OF CLERK OR CARRIER
IN POST OFFICES-Continued

Name of person interviewed

It must be clearly understood that investigators are not required to ask all the questions, nor to ask them in the order presented in the blank. Persons interviewed differ so widely that the investigator must use discretion in conducting each interview. One person may sum up his entire knowledge of the applicant in a few words. Such a person would probably resent being asked a long list of questions which he feels he has already covered, but specific points may be presented to him in order to determine whether his generalization covers them. The discussion of training investigators, page 36, deals with this question in greater detail.

Many informants are disconcerted and are less willing to talk if they see an interviewer vigorously writing their voluntary answers. For this reason the arrangement of the blank, which facilitates organizing and recording the facts learned, is particularly advantageous.

It is not imperative that the investigator list the answers during the interview. It is often possible to record them during the interview, however, since the arrangement of the questions on the blank necessitates the writing of only a letter, in many cases, rather than several phrases or sentences.

A chief advantage of the blank lies in the fact that it guides the investigator in covering the necessary points, thereby preventing waste of time on unnecessary issues and insuring that no questions are overlooked.

Because the form provides for the records of three interviews to be placed on a single sheet, the investigator's notations form a compact, permanent record. This provision eliminates the necessity of clerical work in combining records and therefore precludes the clerical errors which might be so introduced.

Due to the compact arrangement for recording interviews, as well as to special devices which have been introduced, the interview form enables the commission and the appointing officer to see a complete picture of the applicant's characteristics without reading pages of words. Not only are answers to questions indicated by letters, but the letters are so selected that a glance suffices to discover whether the report is favorable or unfavorable, since "x," "y," and "z" always indicate derogatory comments or situations which require special consideration, while "a," "b," and "c" denote that the comments were favorable.

3. A tentative procedure for investigation was developed, and investigators were trained to follow this procedure. The following points were stressed:

(a) When investigating an applicant, select for interview at least three disinterested persons who are most likely to know the applicant's character well.

Since the applicant gives as reference only those who he believes will say favorable things about him, the persons named by him are frequently not those whom it is most important to interview. Persons not given as references-former employers, the captain or a lieutenant of the police precinct in which the applicant lives or works, acquaintances of the applicant who are in Government service, etc.-should be asked to give information regarding the applicant's character.

(b) At the beginning of the interview, explain the purpose of it as follows:

"Mr. has applied for a position in the post-office service which would subject him to temptation to steal money and valuables from the mails. The safety of all mail, which includes your mail, depends upon the selection of honest employees to handle it. We are asking you for definite information, and for your opinions in so far as they will lead to something definite. The main objects are, first, to determine whether or not a more careful investigation should be made, and in regard to what facts, and, second, to learn of references who can give additional or more detailed information. You will not be asked to sign anything.” (c) Whenever further information is desirable, ask question E, "Can you give me any specific example or reason for your answer?" If the

person interviewed is unable to give details, ask question R, "Can you give me the name of anyone from whom I can secure more information regarding this point?" The first is designed to secure definite information rather than opinion; opinion is valuable only as it leads to something definite. The second is used to obtain leads to sources of both additional information and verifications.

(d) Secure an answer to every question.

(e) Secure correct names, addresses, and dates.

(f) Verify all reports which are unfavorable to an applicant.

4. As an aid to planning investigation procedure, consideration was given to determining the types of false statements made by applicants in filling out the application form.

It was found that the false statements most frequently made are those regarding arrest, removal from employment, and excessive use of intoxicants. Another common offense is falsification with regard to duration of employment and responsibility of positions held. Incomplete employment records are often given when the applicant desires to avoid investigation of employment where services have been unsatisfactory.

Applicants may falsify in regard to their having taken previous examinations for positions in the civil service. Applicants who have been barred from examination frequently make false statements in answer to the questions concerning debarment.

False statements are also made as to citizenship.

5. Since applicants always list references, and since many letters of recommendation are submitted, it was decided to include in this program a study of the value of information from persons indicated as references by the applicant.

6. A short, confidential voucher, asking pertinent questions covering the character of the applicant, was developed to be sent to persons who can most probably give information about him. The voucher form used before this time was longer than necessary, and it was felt that many persons would, for that reason, object to filling it out. Since the voucher is used primarily to determine only two points-the applicant's honesty and his industry-questions on the new forms were limited to those which would serve this purpose.

7. It is a matter of common knowledge that many employers hesitate to give in writing adverse reports regarding former employees who have been discharged for offenses committed while in the employer's service. However, they are usually willing to give this information orally. Accordingly, a statement was added to the inquiry blank discussed in the preceding paragraph. This statement was to the effect that if the person receiving the inquiry had any information regarding the applicant which he did not wish to put in writing on the form, he might merely check this statement and a representative of the commission would call to receive the information in person.

Results of preliminary program

During the first six months' use of the fingerprinting system in Chicago, 47 applicants for positions in the Chicago post office were found to have criminal records. All of these applicants had stated under oath, in their applications, that they had never been arrested. This preliminary study promised such valuable results in this regard that a separate unit for the handling of fingerprints was established and has since been in operation.

The use of the confidential voucher system, and the interviewing of those employers and others who checked the sentence on the voucher to the effect that they would give more information if the commission sent an investigator, brought out the fact that 131⁄2 per cent of those who passed the examination should be

barred from the eligible list on account of defects of character. It was found that, of 41 such investigations which were made, 33 resulted in rejection for this reason. In 62 additional cases information was developed which, while it would not warrant rejection, was of such a nature as to be an aid to the postmaster making a selection from the eligible lists.

The voucher was found valuable in reducing the time and the expense both of verifying statements made on applications and of securing additional data concerning an applicant. More responses to requests for information can be secured when voucher forms are supplied than when the requests must be answered by letters.

During the preliminary program personal investigations brought to light the fact that we were about to place on the eligible register a number of men who had been discharged for stealing. It was clear that had it not been for these investigations we should never have been apprised of the facts in these cases. The first case investigated was that of a man formerly employed by a large Chicago corporation, which had discharged him upon discovering that he was keeping 50 per cent of the receipts which he collected for the company each day. The employer of this man had stated that he would not give details on the inquiry blank furnished, but he was willing to give the information to the investigator in person.

The investigations demonstrated the fact that letters or vouchers signed by friends of the applicant not only are useless as a basis for information, but are very misleading. A follow-up of letters of recommendation disclosed the fact that many who had sent in favorable letters regarding an applicant had done so only because they did not wish to prevent him from securing the position. Such recommendation was given, in many cases, even when the reference was aware of the fact that the applicant was unsuited for the position or was dishonest and unreliable.

PRESENT PROGRAM

The present program will be conducted jointly by the Civil Service Commission and the Post Office Department. The objectives of this study are:

1. To establish cooperation of all agencies which are in a position to be of assistance in these investigations, and to utilize all available data.

(a) To secure the cooperation of the United States Chamber of Commerce, local chambers of commerce, local employment managers' associations, and local chiefs of police, as well as local postal and civil-service officials.

(b) To determine the value of postal records as an aid in securing present and former addresses of persons given as references and in securing former addresses of applicants.

2. To develop a more effective system for using confidential inquiry blanks. 3. To develop procedure for a permanent investigation system.

The procedure to be followed in conducting this program will be based on the findings in the preliminary program. The organization of agencies which will aid in the present study is more extensive and more nearly complete than was possible before.

The city in which the new study will be conducted has, for our purposes, already been organized into districts. Plans have also been made for coordinating the work of investigation, in order to avoid duplication and thus to conserve time.

To further the aim of developing a more effective system of securing information by means of confidential inquiry forms, a study will be made of the relative value of the forms which were used in the preliminary program, of other forms

which are now available for use in the commission, and of new forms which are being constructed. Two of the new forms are designed to minimize the difficulties that arise because employers hesitate to submit over their signatures information which is derogatory to former employees.

In connection with the new program, a training course for investigators will be conducted. Unless every man knows the blank thoroughly its use is of little value. If questions are formally read, the investigator loses contact with the person being interviewed to such an extent that he may fail to secure the desired information.

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Investigators will be trained to handle the interviews which can not consist of set questions and answers. They will be shown how to use the blank in informal interviews in cases where such procedure is desirable. For instance, a man may at the beginning of the interview give a wholly favorable statement with regard to an applicant. He may say, "He is one of the finest young men I know-clean-cut in every way." Such a statement would eliminate the necessity of asking many of the questions in the form in which they are presented. Certainly it would affect procedure. It would be absurd, after that statement, to ask, "Has he ever been accused of stealing? or Might he take money from the mails if he thought that no one would ever suspect him?" investigator would cover specific points, however, by saying, "I take it, then, that you consider him industrious—interested in his work and steady; he is intelligent and discreet-trustworthy. (Correct me if I have the wrong impression of your opinion.) Judging from your statement, you undoubtedly consider him unlikely to yield to the temptation to steal, or to be dishonest in any way.” Frequently a general statement is made, such as "He is a bright, intelligent young fellow, and I'm sure he will make good." By means of the follow-up procedure just presented it may be discovered that, although intelligent and ambitious, he can not be trusted. This would be brought out in response to "I take it you would be willing to have him assigned to handling the mail, including money orders, cash, and so forth, for your firm."

This method of questioning would reduce the time of the interview and would avoid irritating the person interviewed. Direct questions would, of course, be required to cover such points as "How much responsibility has he had in handling the funds and the personal property of others?"

The present study will cover a period of approximately five months. During that time selected employees of the Post Office Department will work with this commission in developing procedure for an improved system of investigation.

ORAL EXAMINATIONS

(DEVELOPING THEM AND TRAINING EXAMINERS TO GIVE THEM)

The development of oral examinations for men seeking positions in the Prohibition Bureau offered an unusual opportunity for research in connection with this type of examination.

Here were approximately 4,500 competitors, who had qualified on the written tests, to be considered for positions which public sentiment demanded must be filled with men of integrity as well as ability. Those qualities are, of course, sought in all Government workers. Never before, however, were there thrown open at one time in the United States civil service so many positions of responsibility. The reliability of these competitors had to be determined with the utmost care.

The written test was used to determine competitors' judgment. The interview made possible observation of the applicant's manner and personal ap