tute is not an employee, and that we can not write a classification for substitutes, it would seem as though we were effectually blocked-at least, so it appeared to me at first. But finally I recalled something of the provision regulating substitute service immediately prior to 1920. I have not the exact wording available perhaps our editor can supply it--but the meaning, as I recall it, was that after a year's service the sub became a clerk, unassigned, if appointments were not available, but a clerk, nevertheless, and no longer a sub. And that explains my plan. If the title "substitute" deprives us of all consideration as Government employees, then let us get away from it. If we could become a clerk after serving one year, that should automatically settle the question of promotion in grades, annual and sick leave.

Of course, it would take a stiff fight to bring this about, but the idea is not entirely a new one. And I sincerely believe we could "sell" a simple piece of legislation like this much more easily than the two bills we now have before Congress, and the results would be more to our advantage, as we would not then be limited in advancement to grade 3. Do not imagine from this that I am criticizing S. 3373 and H. R. 9510. They are what we asked for, and I believe I have worked as conscientiously for their passage as anyone. But, from present indications, they will not pass during this session, and, if we are to rely on Mr. Kelly's judgment, we must change our plan of attack. An old adage warns us not to change horses in the middle of the stream, but when it seems very improbable that the horse we are riding will get us across it is time to consider trying another.

So I am offering this idea, not as a concrete, definite, or perfect plan, but merely as a suggestion that might help solve our difficulty. Think it over, and, if it appeals to you as containing any merit, see that it is brought up for consideration in your branch meetings and at your division conventions. For it is from embryo ideas such as these that our national convention must evolve some plan to raise us out of our "slough of despond."

[From the April, 1927, issue of The Railway Post Office]

LONG PERIOD OF SUBSTITUTING

The substitute in the Railway Mail Service has become a permanent fixture, it is a period of apprenticeship that all future clerks will have to serve, which can neither be dodged nor avoided, except there be some unusual and unexpected local condition arise, similar to that which existed during the late war when many of the clerks eligible for military service volunteered into the Army.

There may be times when the substitutes will be appointed regular clerks at a rapid rate, due to a rapid development of some formerly sparsely settled country, or due to an unusually large number of deaths or retirements within the ranks. But there is nowhere that that will continue for any great length of time and when all of the then existing vacancies have been filled, many of the substitutes will possibly have to sub for several years before another vacancy opens to which they are eligible for appointment.

Now all that being admittedly true, why would it not be well for the rank and file of the association to get together in conference with all the branch, division, and national officers during the national convention this fall and work out some workable and feasible plan that will prove a benefit and an aid to the substitutes rather than a boomerang as that last salary raise proved to be.

With a few of the best minds in the association already interested in our behalf, do not tell me that a plan along some line can not be worked out that will work to the advantage of the substitutes. And when that plan has been promulgated and approved, then let the association as a whole back it and put it through Congress, and let it shine as one example where the Railway Mail Association has put something over that helped the substitutes. For when it is condensed down to a fine point, what has the association actually done specifically for the substitutes? The substitutes almost have to get what they are now or they could not live and stay in the service. Now don't think I am too radical, for it has now reached the place where I will reap little or no benefit from substitute legislation. By the time any legislation is passed for the substitutes, I will be a regular clerk or so near it as to make little difference, or be out of the service entirely.

It is a known fact that the two bills designed to help the substitutes in the last Congress were not pushed by the association; Mr. Kelly himself saying two months ago that it would be practically impossible to write classification for substitutes.

Now, if it is impossible to write classification for substitutes why would it not be wise to give consideration to Tremper's suggestion in the March issue of the official journal, wherein he advocated appointment as a regular clerk, unassigned, after a substitute period of one year or 306 working days? That would not run afoul of the old Federal law prohibiting the payment of wages except for work actually done, and at the same time give the substitute his vacation, sick leave, and grade, the very things they have been fighting for for two years and more. There may be faults in that suggestion somewhere, but they do not appear on the surface at least, and the association as a whole might do well to give it deep consideration.

And consideration for their troubles is what the substitutes need right at this time. Possibly more than ever, since the regular clerks are talking more money. If another salary increase is talked too much the subs may be forgotten again, just as they were at the last increase.

There is no doubt but what the service needs the dual hour and mileage law, and that is one of the principal needs of the road service; and there should be some kind of a night differential. The clerks all should receive more money, from the superintendent to the lowest substitute or probationer; and last and without a doubt the greatest need, is a general betterment of the working conditions of the substitutes, providing in some manner higher grades, together with vacation and sick leave. T. L. WILCOXON,

119 South Cross Street, Little Rock, Ark.

[From the May, 1927, issue of The Railway Post Office]

SUBSTITUTES

(By George L. Tremper, 3743 South Broadway, Denver, Colo.)

In writing the article appearing in the March number of our paper, I overlooked one essential point, and perhaps several others not quite so essential. In that article I suggested, as an idea to work from, that substitutes be designated as unassigned clerks after one year's service. Because there seems to be an absolutely unwarranted prejudice against classifying substitutes on the ridiculous premise that a substitute is not a Government employee, it seemed advisable to legally establish our status as a clerk and an employee of the Government. But for this move to be of any great value to substitutes, it would have to carry along with it advancement in grade, as well as annual and sick leave privileges. Now it appears that, while designation as a clerk would automatically give subs annual and sick leave, some special provision would have to be made to insure promotion, as a clerk, under the present law, is not advanced in grade, unless regularly assigned. I do not believe it necessary at this time to go into detail regarding this or other provisions that might be written in to protect our interests, this can all be taken care of in due time by those better qualified to write prospective legislation, we of the rank and file need only to make clear what we wish. And we have undoubtedly made it clear to everyone that we wish and expect the same consideration as our fellow workers.

Some are suggesting advancement only to grade three, others to grade four or five. I believe grade four to be the logical goal, as this is the class A distributor grade. No regularly appointed clerk is halted in his advancement until he has reached grade four; and on the other hand, we can hardly ask for a regular promotion, as unassigned clerks, to a point where we would be higher in grade than a class A distributor.

[From the May, 1927, issue of The Railway Post Office]

SUBSTITUTES

(By E. V. Nickell, substitute, Oklahoma City, Okla.)

Tremper's suggestion in the March issue is the best plan I have yet seen offered for the relief of our grade and leave difficulties. Why shouldn't we be made regular clerks, even if unassigned, after spending a probationary period as substitutes and proving our adaptability as postal clerks? The pay would probably

be for "service actually performed," the same as substitutes and surplus clerks are paid to-day. Why not give us our promotions in grade each year as we earn them, instead of waiting three or four years and then handing them all to us at once? Why make men serve six or eight years before giving them their grades in one district while in another district where the Railway Mail Service is still expanding the substitute will only have to wait three or four years?

While

Some of the older clerks still speak of the expectation of an expanding service taking care of our difficulties. They seem to think that a rapidly expanding Railway Mail Service will again return, as it was 20 or 30 years ago. occasionally a new run may be established or an old run extended or an old run reestablished, most of the country is now well supplied with railroad service, and what help we can expect from that direction is not worth considering.

In fact, there are only two. sources for appointment worth considering, and these are deaths and retirements. As I pointed out in my other letter, the ratio here requires several years of service before he can expect a regular assignment. The requirements of the mail service is such that a clerk with the ability to enter the service will learn the work within less than two years' time. He will have learned the rules and regulations and thrown the case examinations required. His general knowledge and accuracy of distribution will increase some the longer he stays in the service. The work given him to do and expected of him shows that he is considered as good as older clerks in the service. A substitute that is assigned to one line most of his time does his work as well as the average grade 5 clerk in the assignments he fills.

The CHAIRMAN. Docket No. 42, S. 2105, a bill introduced by Senator Dale in relation to the salaries of superintendents in charge of postal car construction and assistant chief clerks in the Railway Mail Service.

(The bill referred to is as follows:)

[S. 2105, Seventieth Congress, first session]

A BILL To classify certain positions in the Railway Mail Service

Be it enacted by the Senate and House of Representatives of the United States of America in Congress assembled, That section 7 of the act of February 28, 1925 (Forty-third Statutes), be amended as follows:

"That the salary of assistant superintendent in charge of postal-car construction shall be $3,600, and the salary of assistant chief clerks in the Railway Mail Service shall be $3,000.

"Clerks in charge of class B railway post offices, class B terminal railway post offices, class B transfer offices, four clerks in the office of division superintendents, one clerk in the offices of chief clerks and examiners shall be of grade 7.

"Clerks in charge in the United States sea post service shall be of grade 7 and clerks of grade 5 with salaries corresponding to those grades in the Railway Mail Service."

The CHAIRMAN. Is there anybody present who wishes to appear with reference to this bill?

Mr. COLLINS. This is Senate bill 2105?

The CHAIRMAN. Yes.

STATEMENT OF W. M. COLLINS, PRESIDENT OF THE RAILWAY MAIL ASSOCIATION-Resumed

Mr. COLLINS. First, Mr. Chairman, I would state that the reference to the Assistant Superintendent of Car Construction might be omitted from this bill, as it is covered in Senate bill 2294. The other two provisions of the bill pertain to clerks in charge.

I will try to be as brief as possible.

You may recall that prior to the passage of the act of February 28, 1925, there was a difference in the salaries provided for clerks

100168-28-3

in charge between the Senate and House bills. The Senate bill provided seven grades of clerks, while the House bill provided only

six.

The salary of the sixth grade in the House bill was the same as the seventh grade of the Senate bill. During the conference part of the Senate bill was incorporated in the conference report and part of the House bill, so that as a result, while we have the seventh grade, we do not have a provision of law promoting any clerk to that grade. As a result we have no clerks in charge, outside of, I believe, 16 who have been in grade 7 in some of the very large terminals in the service. That is done under a decision of the Comptroller General. Other than that we have no men in this grade 7, and this bill proposes to amend the law so that the department would have authority to promote these clerks in charge to the grade now provided by law. That, in brief, is the intent of the bill.

I have some data and further explanations and a short statement that I would like to have placed in the record.

(The data and statement referred to and submitted by the witness are as follows:)

STATEMENT SUBMITTED BY THE RAILWAY MAIL ASSOCIATION IN CONNECTION WITH S. 2105

(By W. M. Collins, president, April 19, 1928)

In presenting for consideration Senate bill 2105 I would first suggest that lines 5 to 8, inclusive, be omitted from this bill, as such is covered in the provisions of S. 2294.

This bill relates to the provisions of the act of February 28, 1925, which is known as the reclassification law for the Postal Service. Among the provisions of said act is one establishing the number of grades and salaries for such grades in the Railway Mail Service. This provision reads as follows:

"That railway postal clerks shall be divided into two classes, class A and class B, and into seven grades with annual salaries as follows: Grade 1, salary $1,900; grade 2, salary $2,000; grade 3, salary $2,150; grade 4, salary $2,300; grade 5, salary $2,450; grade 6, salary $2,600; grade 7, salary $2,700."

While the above provision establishes the number of grades and salaries for such grades you will note that it also establishes two classifications for the Railway Mail Service being class A and class B, class B being the higher classification. With regard to these classifications the act of February 28, 1925, automatically places each railway post office line, terminal railway post office or transfer office in the corresponding class that they were in on the date the act became effective. On account of having the two classifications in the Railway Mail Service there are limitations set as to the promotions within each classification. The present law provides that:

"Railway post office lines shall be divided into two classes, class A and class B, and clerks assigned to class A lines shall be promoted successively to grade 4, and clerks in charge to grade 5. Clerks assigned to class B lines shall be promoted successively to grade 5 and clerks in charge to grade 6."

The same provisions as regards promotions apply to the two classes of terminals and transfer offices. It is therefore apparent that while we have seven grades established by law for the Railway Mail Service, that there is no provision of law which would promote any railway postal clerk to the seventh grade, and as a result our clerks in charge of class B lines can not be advanced beyond grade 6. It might be asked as to why there was no provision made for such promotion. Those who recall the different provisions that were considered prior to the passage of the act of February 28, 1925, will recall that the Senate bill estab lished these seven grades, while the House bill continued the former six grades, but that the salary of the sixth grade in the House bill was the same as the salary of the seventh grade in the Senate bill. The House bill also provided the method of promotion to the higher grades, providing that clerks in charge of class B lines should be promoted to grade 6. When these bills went to conference, that part of the Senate bill providing for seven grades, and that part of the

House bill which provided that these clerks in charge be promoted to grade 6 was incorporated in the conference report. You will thus see how this came about and the reasons for this present situation, or rather the situation that we have had the past three years.

The proposed amendment-“Clerks in charge of class B railway post offices, class B terminal railway post offices, and class B transfer offices, four clerks in the office of division superintendents, one clerk in the offices of chief clerks and examiners shall be of grade 7"-proposes to advance these clerks in charge of class B lines who are not of grade 6 to the grade 7 now in the law, with similar action taken with reference to grade 6 men who are now assigned to superintendents' and chief clerks' offices of the Railway Mail Service.

There can be no question but that Congress intended that these clerks in charge should be advanced to this grade 7. On account of the provisions of the law, the department has not had authority to make such promotions except that the Comptroller General did give authority to promote 16 clerks assigned as clerks in charge in the large terminal railway post offices to grade 7. Authority was not granted to promote any others to that grade.

The last paragraph of S. 2105 would provide that the clerks in the United States sea post service would be in the corresponding grades in the Railway Mail Service; that is, clerks in charge would be of grade 7 and clerks of grade 5. The sea post service is separate from the Railway Mail Service, although under the jurisdiction of the Second Assistant Postmaster General. The salaries of sea post clerks are paid from the lump sum appropriation for foreign mail service and are fixed by the Postmaster General. There are only two grades of clerks in the sea post service, and their present salaries are clerks in charge $2,500, and clerks $2,300.

These positions in the sea post service are usually filled by transfer from the Railway Mail Service. There are not many such clerks, being only about 50 in the entire sea post service.

The CHAIRMAN. Does anybody else wish to be heard?

(No response.)

If not, I will put into the record at this point a letter from the Acting Postmaster General.

(The letter referred to and submitted by the chairman is as follows:) POST OFFICE DEPARTMENT, Washington, D. C., January 28, 1928.

Hon. GEORGE H. MOSES,

Chairman Committee on Post Offices and Post Roads,

United States Senate.

MY DEAR SENATOR MOSES: In further reply to your letter of January 12, transmitting a copy of S. 2105, a bill to classify certain positions in the Railway Mail Service and sea post service and requesting suggestions thereto, I have to state that the employees affected by the proposed bill received a substantial increase in salary under the postal reclassification act of February 28, 1925, and as the changes contemplated by the proposed legislation would require an initial appropriation of approximately $562,000, I recommend against the enactment of the proposed legislation.

I am informed by the Director of the Budget that an unfavorable report on the proposed law would not be in conflict with the financial program of the President.

Very truly yours,

W. IRVING GLOVER,
Acting Postmaster General.

The CHAIRMAN. The next is Docket 43, S. 2108, a bill introduced hy Senator Dale to provide leaves of absence with pay to post-office employees.

(The bill referred to is as follows:)

[S. 2108, Seventieth Congress, first session]

A BILL To amend the act of February 28, 1925, providing for leaves of absence with pay

Be it enacted by the Senate and House of Representatives of the United States of America in Congress assembled, That employees in the Postal Service, including substitute employees, shall be granted thirty days leave of absence with pay,