January 1st and July 1st. The Commission has long published in the volume containing its annual report, a roster of the Civil Service as of January 1st of the year succeeding that for which the report is made. State reports come from the printing office with great deliberation, and usually before the volume is issued, this roster is a year old, and its usefulness greatly impaired. At the present time, there is no report in general circulation except one which is practically two years old. It is believed that public officers, members of the Legislature and others, would find such a publication of value. Copies should be sent free to state officers, members of the Legislature and others entitled to receive the Session Laws, and other copies might be placed on sale at the least possible price which would cover the cost of publication and mailing. The ordinary appropriations for the Civil Service Commission are not sufficient to permit the publication of the two pamphlets suggested, and if the Commission is authorized to undertake this work a special appropriation of $1,000 should be made for the purpose.

Vacations.

At a meeting held on September 10th, the Commission took under consideration the matter of vacations of employees in its own office, and appointed a committee to prepare a plan relative thereto. It occurred to this committee that in the absence of any statutory provision, and in view of the different terms of vacations allowed the employees of the different State departments, a uniform plan might perhaps be adopted for all departments, which would be just to the employees and at the same time economical and beneficial to the service. At present, vacations in some departments are only two weeks and in others a month. In some no account is taken of temporary absences, and in others the time allowed for vacation must cover all absences from duty. On September 21st a circular letter was sent to the heads of thirty-two State departments inquiring if they would be represented if it were deemed advisable to call a meeting to consider this subject. Twenty-eight favorable replies were received. It is planned to have a meeting of representatives of State departments at an early date, in an effort to see if any action can be taken to devise a uniform plan for vacations, to be put in operation in the coming year.

Pensions.

Proposals for the establishment of retiring pensions for civil service employees in both the national and State service are receiving increasing attention, and the general idea meets with favor among many public officials and civil service reformers, although no particular plan has been worked out which commands united approval. Several bills have been introduced into the Legislature of this State providing for such pensions, particularly in behalf of employees of New York city. The number of superannuated employees in the State service does not at present appear to be great enough to cause serious inconvenience or to make the necessity for dealing with the problem acute. Nevertheless there is likely to be an increasing demand for some retirement provision in the State service. The Civil Service Commission believes that the subject should not be dealt with piecemeal for any department or political division, or by any hastily devised legislation, but that the general policy of provision for retirement pensions should be carefully considered, and if any action is taken a comprehensive scheme should be adopted which would at once insure economical administration and the preservation of efficiency and discipline in the service. The salaries of public employees in the State and its cities, except in the higher grades, compare favorably with those paid for similar service in private life, and employees should be able to make provision for their own old age, and probably with well-devised encouragement for savings they would, in the long run, be able to do so. In the initiation of any plan for retirement funds made up from contributions of employees, however, it would doubtless be necessary for the State to give its aid in behalf of those already near the retirement age, while placing upon the younger employees the duty of maintaining the fund for their own retirement. Insurance rather than a pension scheme would be most in harmony with the independent and self-respectful traditions of American life, and less likely to create a prejudice against a permanent civil service. With reasonable initial aid from the State, such insurance might be obtained at reasonable cost to employees and should serve all practical purposes as a safeguard against want. Any insurance system, it is believed, should be so organized that every individual would have his own

particular insurance, paid for by himself and no one else, except the State in the case of employees already advanced in service, and every insurance policy should have at all times an adequate surrender value, so that no question could arise as to property right in office, or in the pension fund contributed to by an employee which would be sacrificed by separation from the service. It is absolutely essential to the discipline of the public service that heads of departments should have the fullest right of removal for reasonable cause, without the necessity of proving in court a case of positive malfeasance. Any property right in a fund attached to the public service would tend unreasonably to hamper the exercise of that power, and to put the administration of the public service at the mercy of organized public servants.

Meetings.

Although the work of the Commission is not indicated by the number of meetings held, it may be noted that it has met in formal session for twenty-eight separate meetings, some of which extended through two days, during the past year, in addition to the inspections and investigations made by the Commissioners individually. Seventeen meetings were held in Albany, nine in New York city, one in Rochester and one in New Rochelle. This is a larger number of separate meetings than has been held by the Commission in any previous year, and considerably larger than in any year except during the period covering the extensive formative work of reorganization necessitated by the passage of the "White" law.

With a view to handling its work in the most expeditious and most efficient manner practicable, the Commission has now arranged to hold stated meetings in the first and third week of each month. The Commissioners at all times keep in close touch with. the department, and personally exercise supervision over the outside work involved in the recent rapid growth and extension of the service.

Statistical.

In 1909, 206 open competitive examinations were held and completed, with 7,013 candidates; 90 competitive promotion examina

tions with 802 candidates. Two open competitive examinations were held in 1908 and completed in 1909, and two open competitive examinations with 113 candidates have been held in 1909 but not yet completed. During the year, 1,183 appointments have been made from open competitive lists and 189 promotions as the result of competitive ratings. Ninety-eight appointments to noncompetitive positions have been made, after examination by the Commission, and 3,153 have been made after examinations by boards of examiners in State institutions, these being lower grade positions in State hospitals and charitable institutions. The classified service of the State and counties under the jurisdiction of the Commission now numbers in the State service, 878 unclassified, 667 exempt (not including deputies who are by law appointed on the nomination of party committees, and additional deputies, in the office of the State Superintendent of Elections), 4,866 competitive, 5,615 noncompetitive. In the county service, 227 unclassified, 361 exempt, 1,811 competitive, 100 noncompetitive. In the Appendices to this report will be found the report of the Chief Examiner and the usual statistics and tables concerning examinations, appointments, etc., revisions and amendments of the municipal rules, State rules and regulations, digests of court decisions and rulings of the Commission, and a roster of the State and county employees.*

Conclusion.

In conclusion, the Commission desires to express its appreciation of the aid given to it by the Attorney-General, the Hon. Edward R. O'Malley, and his assistants, in the conduct of litigation and in the preparation of legal opinions, and also to acknowledge the increasingly cordial co-operation of municipal commissions and public officers generally, in its efforts to make the merit system a practical instrument of efficient government.

Respectfully submitted,

CHARLES F. MILLIKEN,
ROSCOE C. E. BROWN,

JOHN E. KRAFT,

State Civil Service Commission.

*The roster has been published under separate cover as Volume II of this report.

APPENDIX A

REPORT OF THE COMMISSION IN THE MATTER OF INVESTIGATION CONCERNING THE REMOVAL OF EARL H. GALLUP FROM THE POSITION OF CHIEF TRANSFER TAX CLERK IN THE OFFICE OF THE STATE COMPTROLLER

REPORT OF THE COMMISSION IN THE MATTER OF INVESTIGATION OF LETTERS OF JOHN F. SKELLY, ASSISTANT SECRETARY OF THE MUNICIPAL CIVIL SERVICE COMMISSISSION OF THE CITY OF NEW YORK, TO SENATOR JAMES J. FRAWLEY

REPORT OF THE COMMISSION IN THE MATTER OF INVESTIGATION OF THE ADMINISTRATION OF THE CIVIL SERVICE LAW AND RULES IN THE CITY OF NEW ROCHELLE