College and Research Libraries By D O N A L D E . D I C K A S O N Sleeves or Zigzag Lines: Salary Determination Through Fair Evaluation THE classic s t a t e m e n t w h i c h inevitably appears sooner or l a t e r in any discussion of employee relations is, " P e o p l e are m u c h m o r e interested in h o w their compensation compares w i t h t h a t of others t h a n in their o w n compensation as s u c h . " T r i t e as this s t a t e m e n t has become, it is nonetheless t r u e . T o have the slightest chance of employee approval, any scheme of compensation m u s t provide a f a i r relation- ship between the r e q u i r e m e n t s of the posi- tion a n d the compensation paid to the one filling it. B u t even m o r e i m p o r t a n t is the necessity t h a t relationships between salaries f o r d i f f e r e n t positions shall be, in p r o p o r - tion, m u c h like the relationships between j o b r e q u i r e m e n t s . N o reasonable employer w o u l d dispute this, b u t m a n y entirely reasonable employers do have salary discrepancies between posi- tions w h i c h c a n n o t possibly be in h a r m o n y w i t h the qualities expected in those filling the positions. T h e reason f o r this condi- tion is n o t lack of recognition of the correct- ness of the principle being violated n o r is it i n t e n t i o n a l discrimination between em- ployees. T h e reason is, however, t h a t it is usually very difficult to j u d g e , or even t o measure, the real j o b values and t o relate t h e m to a valid compensation relationship. T h i s problem exists in a l i b r a r y , j u s t as it exists in a f a c t o r y or an office. W e m a y be sure t h a t a chief r e f e r e n c e l i b r a r i a n should be paid m o r e t h a n a j a n i t o r , b u t can w e be as sure a b o u t the relative positions of a searcher, a secretary to t h e l i b r a r i a n , a skilled t r a d e s m a n responsible f o r m a i n t e - nance, a building o p e r a t i n g engineer re- sponsible f o r the h e a t i n g and l i g h t i n g system, the person in the l a w l i b r a r y re- sponsible f o r acquisitions, the c u r a t o r of a small b u t very i m p o r t a n t special collection, a n d the f a i t h f u l m e m b e r of a small l i b r a r y staff w h o k n o w s h o w to do any of the varied tasks in his o r g a n i z a t i o n ? A n d even t h o u g h such positions can be placed in relative or- der, can they be placed at a suitable distance f r o m each other so as to d e t e r m i n e f a i r l y the correct percentage relationship between their salaries? I t is done some w a y , of course. T h e necessity is f u n d a m e n t a l , a n d salary struc- t u r e s are m a d e up, f o r b e t t e r or f o r w o r s e ; b u t it is questionable if any l a r g e percentage of those responsible f o r d i r e c t i n g the oper- ation of libraries could say w i t h e n t i r e honesty t h a t they know t h a t their salaries a r e correct and r i g h t as they relate each to the o t h e r . Nonetheless, t h e r e is a w a y in w h i c h this can be done w i t h reasonable accuracy a n d by w h i c h fairness to staff m e m b e r s may n o t only be m a i n t a i n e d b u t may also be demon- s t r a t e d . T h i s is the w a y of position evalu- ation. Position evaluation consists, in its simplest terms, of t h r e e s t e p s : i . Listing of the factors which go to make up w h a t we expect in qualities and abilities involved in any position—the things which are paid for when the incumbent is employed. J U L Y , 1946 237 2. Determination of the relative values of each factor, and the allocation to each of the number of points expressing this relationship. 3. Analysis of each type of position, giving to each factor in its make-up the number of points indicated by the requirements of the position. Step number one is not too involved. T h e r e are not too many major factors after all. Everything that is expected in a new employee for any type of**work may be in- cluded under two main headings—prepa- ration and personal qualifications. I t is expected that both of these factors be paid for in relationship to the amount of each which is required as a minimum for satis- factory job performance. Once the new employee is on the job it is expected that responsibilities of some sort be given him. Some payment should be made for the as- sumption of responsibility. And if the em- ployee is working under conditions which are either especially unpleasant or especially hazardous, again he is entitled to have his compensation reflect the degree of serious- ness of these conditions. W i t h i n these four basic factors, therefore —preparation required for the job, personal qualifications required for the job, working conditions surrounding the job, and re- sponsibilities required on the job—every element of value for which salaries are com- puted can be f o u n d ; and a proper regard for the degree in which each factor is re- quired as a condition of satisfactory work performance will require that compensation finally granted should bear a reasonable relationship to the factors required for the job. But the reader may well ask how all of this theory can be used in a practical way by a person not skilled in personnel tech- niques and not familiar with the professional jargon thereof. Preparation, personal requirements, re- sponsibilities, working conditions—although all will agree that these should be con- sidered, how shall they be used as measuring tools? T h e following table of factor values provides an answer as developed at the Uni- versity of Illinois. Description and V a l u e of Factors Used in Job Evaluation I. P r e p a r a t i o n R e q u i r e d f o r the Job 30 A . E d u c a t i o n a l R e q u i r e m e n t s 20 1. F o r m a l E d u c a t i o n 15 a. L e s s than 8 g r a d e s o b. G r a m m a r school g r a d u a t i o n 2 c. H i g h school g r a d u a t i o n 7 d. H i g h school g r a d u a t i o n w i t h r e q u i r e m e n t f o r inclusion of special course of study ( a s t y p i n g ) 9 e. C o l l e g e or u n i v e r s i t y d e g r e e ( W h e r e d e g r e e is not required, a l l o w 1 point a b o v e c or d f o r each c o l l e g e y e a r r e q u i r e d ) 12 f. C o l l e g e or u n i v e r s i t y d e g r e e w i t h requirement f o r special course of study (as a c c o u n t i n g ) 15 W h e r e more than the minimum required is indicated as " d e s i r a b l e " split the d i f f e r e n c e b e t w e e n the t w o l e v e l s . E q u i v a l e n t t r a i n i n g in night school or other special courses to be counted as a b o v e . 2. Post g r a d u a t e or s p e c i a l i z e d t r a i n i n g required beyond or in addition to g e n - e r a l w o r k listed in A a b o v e 5 a. L e s s t h a n 3 months b. M o r e than 3 months, less than 12 2 c. 1-2 y e a r s 4 d. M o r e than 2 y e a r s 5 238 COLLEGE AND RESEARCH LIBRARIES D E S C R I P T I O N A N D V A L U E O F F A C T O R S (Continued) B . R e l a t e d E x p e r i e n c e R e q u i r e d 10 i . T w o points per y e a r up to a m a x i m u m of 10 points f o r 5 or m o r e y e a r s . I I . P e r s o n a l Q u a l i f i c a t i o n s R e q u i r e d f o r the J o b . ." 30 A . Skill or D e x t e r i t y 10 1. N o r m a l c o o r d i n a t i o n 1 2. Some m a n u a l a b i l i t y r e q u i r e d 2 - 3 3. C o n s i d e r a b l e use of h a n d skills 4 - 6 4. H i g h d e g r e e of a b i l i t y to m a k e or do by use of the h a n d s 7 - 8 5. R e q u i r e m e n t f o r e x t r e m e l y fine and p r e c i s e w o r k 10 B . S t r e n g t h 5 1. N o r m a l p h y s i c a l fitness 1 2. Some p h y s i c a l s t r e n g t h as a r e q u i r e m e n t of the j o b 2 - 4 3. U s e of c o n s i d e r a b l e p h y s i c a l s t r e n g t h a p r i m a r y j o b r e q u i r e m e n t 5 C . A c c u r a c y 5 1. R e q u i r e m e n t f o r a c c u r a c y , p r e c i s i o n , or attention to d e t a i l not a f a c t o r in the j o b . . 0 2. Some r e q u i r e m e n t s f o r a c c u r a c y , p r e c i s i o n , or attention to d e t a i l to a m i n o r d e g r e e 1 - 2 3. N e e d f o r c o n s i d e r a b l e a c c u r a c y , p r e c i s i o n , or attention to d e t a i l 3 - 4 4. N e e d f o r strict a c c u r a c y , e x t r e m e p r e c i s i o n , or m a r k e d attention to d e t a i l 5 D . I n t e l l i g e n c e L e v e l 10 1. M i n i m u m to almost a v e r a g e 1 - 4 2. A v e r a g e 5 3. R e q u i r e m e n t f o r m o r e t h a n a v e r a g e i n t e l l i g e n c e , up to n e c e s s a r y f o r a v e r y h i g h I Q 6 - 1 0 I I I . W o r k i n g C o n d i t i o n s S u r r o u n d i n g the Job 10 A . U n p l e a s a n t F e a t u r e s 5 1. P o i n t s to be a l l o w e d only if c o n d i t i o n s of w o r k a r e a b n o r m a l l y a n d u n u s u a l l y u n p l e a s a n t b e c a u s e of m a t e r i a l h a n d l e d , p h y s i c a l s u r r o u n d i n g s , or the like, w i t h top score g i v e n o n l y to o u t s t a n d i n g e x a m p l e 1 - 5 B . S a f e t y H a z a r d s 5 1. P o i n t s to be a l l o w e d only if w o r k i n g c o n d i t i o n s p r o v i d e some definite d e g r e e of p h y s i c a l d a n g e r or h a z a r d 1 - 5 I V . R e s p o n s i b i l i t i e s R e q u i r e d on the Job 60 A . R e s p o n s i b i l i t y f o r S e l f - D i r e c t i o n 5 1. W o r k c a r r i e d on u n d e r a m a x i m u m of s u p e r v i s i o n or r e v i e w o 2. Some r e q u i r e m e n t s f o r d e p e n d a b i l i t y w i t h o u t close s u p e r v i s i o n or r e v i e w 1 - 3 3. H i g h d e g r e e of d e p e n d a b i l i t y , f o r w o r k w i t h little or no s u p e r v i s o r y check or r e v i e w 4 - 5 B . R e s p o n s i b i l i t y f o r U s e of I n i t i a t i v e a n d I n d e p e n d e n t J u d g m e n t 15 1. W o r k f o l l o w s r e g u l a r and c l e a r p a t t e r n l a i d out by s u p e r v i s o r w i t h little or no need f o r use of o w n i n i t i a t i v e or i n d e p e n d e n t j u d g m e n t 1 - 2 2. U n d e r d i r e c t s u p e r v i s i o n but w i t h some r e s p o n s i b i l i t y f o r use of o w n i n i t i a t i v e and j u d g m e n t in c a r r y i n g out c e r t a i n d e t a i l s of w o r k 3 - 5 3. U n d e r i m m e d i a t e d i r e c t i o n as to g e n e r a l p l a n s a n d policies, but w i t h c o n s i d - e r a b l e i n d e p e n d e n t f r e e d o m of action in d e v e l o p i n g w o r k i n g p r o c e d u r e s 6 - 1 0 4. W i t h i n the g e n e r a l f r a m e w o r k of d e p a r t m e n t a l or u n i v e r s i t y policy, m a j o r r e s p o n s i b i l i t y f o r p l a n n i n g and c a r r y i n g out w o r k p r o g r a m of the p o s i t i o n . . . . 1 1 - 1 5 C . R e s p o n s i b i l i t y f o r W o r k i n g w i t h O t h e r s 5 1. N o r m a l w o r k r e l a t i o n s h i p s w i t h i n u s u a l lines of a u t h o r i t y w i t h only o r d i n a r y c o n t a c t s w i t h p e r s o n s outside o w n w o r k a r e a 1 2. Some contacts w i t h persons outside* n o r m a l w o r k i n g r e l a t i o n s h i p s r e q u i r i n g co- o p e r a t i o n , tact, and a p p r e c i a t i o n of other points of v i e w and i n v o l v i n g the r e p r e s e n t a t i o n of one's o w n d e p a r t m e n t in these outside contacts 2 - 3 JULY, 1946 239 D E S C R I P T I O N A N D V A L U E O F F A C T O R S (Continued) 3. A l a r g e d e g r e e of o u t s i d e c o n t a c t s i n v o l v i n g use of tact, d i p l o m a c y , a p p r e c i a t i o n of p o i n t of v i e w of others, or an o u t s t a n d i n g d e g r e e of t e a m w o r k 4 - 5 D . R e s p o n s i b i l i t y f o r M a t e r i a l s , E q u i p m e n t , F u n d s , or P e r s o n a l S a f e t y 10 ( T o be used to i n d i c a t e the cost of p h y s i c a l d a m a g e or the d e g r e e of p e r s o n a l h a r m w h i c h w o u l d r e s u l t f r o m n e g l e c t or i m p r o p e r use of e q u i p m e n t or m a t e r i a l s n o r - m a l l y r e q u i r e d f o r the j o b ; or the d e g r e e of t r u s t f o r f u n d s h a n d l e d or c o n t r o l l e d in this p o s i t i o n ; or the d a n g e r to p e r s o n a l s a f e t y w h i c h w o u l d result f r o m c a r e l e s s - ness in p e r f o r m a n c e of d u t y . ) 1. N o m a t e r i a l or e q u i p m e n t s u b j e c t to d a m a g e if n e g l e c t e d o r i m p r o p e r l y h a n d l e d ; no r e s p o n s i b i l i t y f o r h a n d l i n g m o n e y ; no r e a s o n a b l e p o s s i b i l i t y of e n d a n g e r i n g p e r s o n a l s a f e t y o f o t h e r s o 2. M a t e r i a l o r e q u i p m e n t s u b j e c t to d a m a g e o f v e r y little m e a s u r a b l e v a l u e ; or r e s p o n s i b i l i t y f o r h a n d l i n g s m a l l sums of m o n e y u n d e r close c h e c k ; or a s l i g h t p o s s i b i l i t y of d a n g e r to p e r s o n a l s a f e t y i f w o r k is c a r e l e s s l y done 1 - 2 3. M a t e r i a l o r e q u i p m e n t s u b j e c t to d a m a g e of some m e a s u r a b l e v a l u e ; or r e - s p o n s i b i l i t y f o r h a n d l i n g c o n s i d e r a b l e m o n e y u n d e r close c h e c k ; or s a f e t y or w e l f a r e of o t h e r s d e p e n d s to a m e a s u r a b l e d e g r e e on this e m p l o y e e 3 - 5 4. M a t e r i a l o r e q u i p m e n t s u b j e c t to d a m a g e of c o n s i d e r a b l e v a l u e ; or r e s p o n s i - b i l i t y f o r r e g u l a r l y h a n d l i n g c o n s i d e r a b l e sums of m o n e y w i t h o u t close a n d f r e q u e n t c h e c k ; o r a c o n s i d e r a b l e d e g r e e o f r e s p o n s i b i l i t y f o r s a f e t y a n d w e l f a r e of o t h e r s 6 - 8 5. M a t e r i a l a n d e q u i p m e n t s u b j e c t to d a m a g e of g r e a t v a l u e ; o r r e g u l a r and d i r e c t r e s p o n s i b i l i t y f o r h a n d l i n g l a r g e sums of m o n e y u n d e r c o n d i t i o n s such t h a t e r r o r s w o u l d not r e a d i l y or i m m e d i a t e l y be c a u g h t by s u p e r v i s o r y c h e c k ; or d i r e c t r e s p o n s i b i l i t y f o r the p h y s i c a l w e l f a r e of others to the p o i n t w h e r e a n y n e g l e c t o r c a r e l e s s n e s s w o u l d c a u s e h a r m to o t h e r s at l e a s t p o t e n t i a l l y s e r i o u s in n a t u r e 9 - 1 0 E . R e s p o n s i b i l i t y f o r S u p e r v i s i o n 25 1 . N o n e o 2. H e l p e r or 1 j u n i o r 3 3. R o u t i n e task d i r e c t i o n , s m a l l g r o u p ( 5 — ) 5 4. R o u t i n e task d i r e c t i o n , l a r g e g r o u p ( 5 + ) 7 5. D i r e c t i o n v a r i e d a n d d i s c r e t i o n a r y w o r k o f s m a l l g r o u p ( 5 — ) 8 A s s i s t a n t to a b o v e 6 6. D i r e c t i o n v a r i e d a n d d i s c r e t i o n a r y w o r k o f l a r g e g r o u p (5-I-) 10 A s s i s t a n t to a b o v e 8 7. F u l l r e s p o n s i b i l i t y s m a l l d e p a r t m e n t u n d e r ( 1 0 — ) 15 A s s i s t a n t to a b o v e 8. F u l l r e s p o n s i b i l i t y l a r g e d e p a r t m e n t or d i v i s i o n ( 1 0 - f ) 25 A s s i s t a n t to a b o v e 18 T h e f a c t o r s a r e so broken d o w n and t h e s t a t e m e n t s so w o r d e d t h a t anyone w h o k n o w s a b o u t the position can d o a sound job of e v a l u a t i n g the f a c t o r s w h i c h it re- quires. I t may easily be t r i e d . A r o u g h copy of the f o r m " J o b E v a l u a t i o n W o r k S h e e t " should be d r a w n . A n y job t h o r o u g h l y f a m i l i a r to t h e person m a k i n g the evaluation m a y be selected. T h e points w h i c h the job requires in accordance w i t h t h e " D e s c r i p - tion a n d V a l u e of F a c t o r s . . . " are filled in c o l u m n by c o l u m n . T h e total points are added and a job evaluation is a t t a i n e d . I t should be tried on several jobs, the points f o r each added, and their t o t a l s c o m p a r e d . T h e totals may then be set d o w n in ascend- ing o r d e r . O p p o s i t e each should be placed the present salary of the job. If the first a t t e m p t is satisfactory a n d t h e salary sched- ules are correctly related, the salary totals should ascend as do t h e point totals. If they do n o t , one of t h r e e things may be t r u e : t h e point in the allocation of point 240 COLLEGE AND RESEARCH LIBRARIES U N I V E R S I T Y O F I L L I N O I S J O B EVALUATION W O R K SHEET O F F I C E O F N O N A C A D E M I C P E R S O N N E L A S S I G N E D N U M E R I C A L V A L U E S O F E V A L U A T I O N F A C T O R S CLASSIFICATION TITLE F A C T O R S I . P r e p a r a t i o n f o r t h e J o b 11. P e r s o n a l Q u a l i f i c a t i o n s I I I . W o r k i n g C o n d i t i o n s I V . R e s p o n s i b i l i t i e s R e q u i r e d o n t h e J o b POINTS ASSIGNED TO THE CLASSIFI- CATION TITLE CLASSIFICATION TITLE F A C T O R S Education B. A. dSV„, or B. Strength c . Accuracy D. Intelligence A. Unpleasant Feature. B. Safety Haearda A. Self. Direction B. Initiative Judgment c. Working With Other. D. ^Hateriala B. Super, iaion POINTS ASSIGNED TO THE CLASSIFI- CATION TITLE CLASSIFICATION TITLE F A C T O R S 1. Formal Education A. dSV„, or B. Strength c . Accuracy D. Intelligence A. Unpleasant Feature. B. Safety Haearda A. Self. Direction B. Initiative Judgment c. Working With Other. D. ^Hateriala B. Super, iaion POINTS ASSIGNED TO THE CLASSIFI- CATION TITLE E X A M P L E i A s s i s t a n t C l e r k Point« o n 7 gned for 0 iemonstra 0 ion purpt 1 1 1 4 0 0 0 1 1 1 0 17 | 2000—2-46—31754 values has been missed, the salary schedule is out of line and should be corrected, or factors other than pure theory are affecting the salary structures. These three points may be examined in f u r t h e r detail: 1. If there is doubt about the judgment or actual knowledge of the person making the evaluation, someone else should be asked to put down his figures. In the work at Illinois this has been done effectively by supervisors and by those actually doing the job, as well as by the trained staff of the office. While totals may vary, the differences in relation- ship are surprisingly few. It is hardly neces- sary to point out, too, that participation by both employees directly concerned and by supervisors of those employees adds greatly to the probability of final acceptance of the end results by both groups. 2. If the person making the evaluation is satisfied that the values are about right, the burden of proof is on him, as employer, to justify salary schedules which do not accord with those values. Suppose there are one hundred different position classifications (these classifications are discussed in detail later) and a diagonal or ascending line or curve has been drawn on a piece of graph paper. Sup- pose then another line or curve plotting the salaries now being paid is drawn. They will not be exactly parallel; that would be too much to expect. But the salary line should move around within a fairly close "sleeve" above or below the value line, and, as long as it does, the compensation schedule is in good shape. 3. But, when there occurs in the salary line a sharp "zig" below the value line, or an abrupt "zag" above it, then at least questions should be asked: W a s the salary for the "zig- ging" position, perhaps, set there because its incumbent at the time was a young or in- experienced person who was at the minimum of his earning power and worth as an individ- ual? And was the "zag" due to the other situation in which the incumbent was an old experienced employee whose compensation was well above the average because of long life and faithful performance of duty? JULY, 1946 241 I t may be well at this point to discuss w h a t is m e a n t by position classification. A proper discussion of t h a t subject w o u l d re- quire a separate article, b u t it should be underscored and repeated t h a t the whole evaluation scheme has to be based on posi- tions, not people; on w h a t is required to p e r f o r m satisfactorily the duties of the posi- tion, n o t the m e r i t s of the individual him- self. T h e P h . D . can do j a n i t o r w o r k , b u t it is still a j a n i t o r position paying t h e same r a t e t o the g r a d u a t e of the t h i r d g r a d e in the F i f t h W a r d School D i s t r i c t . So, it is necessary to be concerned w i t h w h a t the position needs, n o t w h a t the i n c u m b e n t has, in this p a r t of the discussion. Supply and Demand If this is assumed, the practical adminis- t r a t o r still has to take a realistic point of view t o w a r d the ideal represented by an exactly parallel relationship between job values and compensation. H e c a n n o t ig- nore, as an o u t s t a n d i n g example, the l a w of supply a n d d e m a n d . N o t l o n g ago the w r i t e r m a d e a position classification survey and evaluation f o r a l a r g e l i b r a r y . I t s positions w e r e divided i n t o t w o g r o u p s — t h o s e r e q u i r i n g a l i b r a r y school degree a n d those n o t so r e q u i r i n g . T h e o r e t i c a l l y , the nonprofessional employee w i t h , f o r example, thirty-five value points should have h a d the same salary as the professional w i t h the same n u m b e r of points, since t h e totals as a r r i v e d at w e r e high f o r f a c t o r s required in t h e nonprofessional posi- tions a n d l o w f o r the same ones in the pro- fessional positions, and vice versa. B u t the p r e v a l e n t r a t e in the c o m m u n i t y , based on supply a n d d e m a n d , w a s several h u n d r e d dollars higher f o r the thirty-five-point pro- fessional t h a n f o r the thirty-five-point non- professional, a n d t h a t discrepancy existed all a l o n g the line between the t w o groups. I t w o u l d have been unwise to have insisted on paying the nonprofessional several h u n - dred dollars over the local m a r k e t . I t w o u l d have been f u t i l e to have tried to hire the professional f o r an a m o u n t less t h a n the r a t e he could get elsewhere in the com- m u n i t y . T h e f a c t t h a t supply and d e m a n d h a d a c o n t r o l l i n g effect here w a s accepted a n d t w o separate curves w e r e set up, one f o r professional a n d the o t h e r f o r nonprofes- sional. T h e relationships w i t h i n each curve w e r e a d j u s t e d w i t h o u t t r y i n g to force one to w o r k w i t h the o t h e r . O f course, a b o u t t w e l v e points m i g h t have been allocated f o r each year of l i b r a r y school, b u t t h a t a d j u s t - m e n t w o u l d have been a l i t t l e dubious as compared to o t h e r values f o r e d u c a t i o n . I t did suggest, h o w e v e r , t h a t a year of l i b r a r y school w a s a sound i n v e s t m e n t . T h i s w h o l e subject is n o t so complicated as it seems at first glance. I t has been presented in simple t e r m s and, actually, it is simple. T h e schedule of f a c t o r values i l l u s t r a t e d here does n o t have to be used. T h i s one has w o r k e d in practice, b u t so do others. T h e interesting t h i n g is t h a t the results, in o r d e r of relationship, tend to be similar w i t h the use of any sensible set of f a c t o r values. W h a t p r o c e d u r e should be f o l l o w e d a f t e r the evaluation is m a d e ? F i r s t of all, the several " z i g s " and " z a g s " should be care- f u l l y examined. If t h e r e is n o t some justi- fication f o r their existence, they should be corrected. If they " z i g " below the line, an early increase in salary levels is suggested in o r d e r to get u p to the line. If they " z a g " f a r above, the n e x t h i r i n g f o r t h a t type of w o r k should be d o w n n e a r t h e value line. A l t h o u g h it is n o t practical to reduce salaries f o r those n o w g e t t i n g too m u c h , a similar situation w i t h n e w employees can be avoided. T h u s , w h e n a n e w position is established and a salary m u s t be set, it should be examined closely and the salary based on its values. T h i s p r o c e d u r e should lead to an effective personnel practice in libraries. 242 COLLEGE AND RESEARCH LIBRARIES