September 5, 1973
Page 28534
MAINE'S EXPERIENCE WITH THE INTERGOVERNMENTAL PERSONNEL ACT OF 1970
Mr. MUSKIE. Mr. President, Gov. Kenneth M. Curtis of Maine has sent me the first year summary and evaluation report of the Maine government personnel assessment and training program funded by Maine's fiscal year 1972 grant award under the Intergovernmental Personnel Act. Among other achievements of its first year in operation, the Intergovernmental Personnel Act was responsible for offering 637 Maine public officials almost 16,000 man-hours of training in such different areas as supervision in the public service, developing communication skills, effective oral and written presentation, and labor relations. Comments from participants in these training sessions were highly favorable.
The Intergovernmental Personnel Act was enacted January 5, 1970, after several years of intensive review by the Congress. Designed primarily to help strengthen the personnel resources of State and local governments through Federal grants and technical assistance for training, the IPA has proved itself to be an extremely effective and popular program at a very modest cost to the Federal Government. Since 1970, IPA appropriations have gradually increased to a level of $15 million in fiscal year 1973. The fiscal year 1974 request, however, was reduced to $10 million on the understanding that this reduction would be offset by carryover funds. However, it is my understanding that virtually all of the carryover funds have already been committed by the Civil Service Commission, which administers the IPA program. In effect, the $10 million request represents a cutback of $5 million.
Mr. President, it would be extremely unfortunate if the momentum and achievements of the first 3 years of the Intergovernmental Personnel Act program were set back by this reduced budget request, and I hope that the Senate will consider increasing the appropriation to the $15 million level. I ask unanimous consent that the Maine evaluation report be printed in the RECORD as a document of the program's effectiveness and popularity in my State.
There being no objection, the report was ordered to be printed in the RECORD, as follows:
OFFICE OF THE GOVERNOR,
Augusta, Maine,
July 5, 1973.
Mr. L. F. CRONIN,
Regional Director,
U.S. Civil Service Commission,
John W. McCormack Post Office and Court House,
Boston, Mass.
DEAR MR. CRONIN: It is a pleasure to transmit to you this "First Year Summary And Evaluation Report" of the State of Maine's FY 72 Grant Award under the Intergovernmental Personnel Act of 1970.
The Maine Government Personnel Assessment and Training Program financed by IPA had the following major results:
(1) Increased the Bureau of Public Administration, University of Maine at Orono's capacity to provide a comprehensive and statewide general management educational program for Maine state and local government administrators;
(2) Increased the availability of and access to educational opportunities for in-service personnel with 32 total offerings held in regional locations throughout Maine and representing the delivery of more than 800 hours of instruction and about 15,850 man hours of participant involvement in training;
(3) Provided an assessment of state and local government personnel training needs as a foundation upon which to build future IPA and non-IPA sponsored offerings;
(4) Strengthened the intergovernmental communications and coordination network relative to public personnel and training services among the State Department of Personnel, Maine Municipal Association, the University of Maine at Orono-Bureau of Public Administration, and the U.S. Civil Service Commission Regional Training Center; and
(5) Upgraded the general management skills and abilities of more than 600 Maine government personnel increasing their individual and organizational capabilities to deliver improved public services to Maine citizens.
IPA first-year support has made a significant contribution in assisting Maine state and local governments strengthen their personnel administration and training. However, it must be considered only "a good beginning" and requires continued commitment and increased support if we are to achieve the results needed in these areas.
The staff assistance provided by your Intergovernmental Personnel Programs Division has been most appreciated.
Sincerely,
KENNETH M. CURTIS,
Governor.
INTERGOVERNMENTAL PERSONNEL ACT OF 1970
MAINE GOVERNMENT PERSONNEL ASSESSMENT AND TRAINING PROGRAM
(First year summary and evaluation report, January 1– December 31, 1972)
I. BUREAU OF PUBLIC ADMINISTRATION
In September 1971, Governor Kenneth M. Curtis designated the Bureau of Public Administration, University of Maine at Orono, as the agency to organize and administer a statewide program to identify and upgrade the general management skills and abilities of Maine government administrators, under the Intergovernmental Personnel Act of 1970.
The Bureau of Public Administration (BPA) was created by the 102nd Maine Legislature in 1965 as a part of the Department of Government (now Political Science) at the University of Maine at Orono, and charged with providing: (1) research on Maine governmental problems; (2) career development of Maine governmental employees through greater educational opportunities for public employees; and (3) publications on governmental subjects.
The BPA has been active in providing varied education and training programs for Maine governments during the past five years. It has developed as a recognized provider of career development courses aimed at upgrading the skills and abilities of Maine government personnel and thereby improving the quality of Maine public services.
The following is a report on Maine's first year IPA activities.
II. FIRST YEAR PROGRAM PLANS
Maine's first year grant award covered the period January 1, 1972, through December 31, 1972 and totaled $84,000 (including Maine's $60,000 share of federal IPA funds). The work program was designed by BPA in consultation with numerous state and local government officials. It had the specific endorsement of the Maine State Department of Personnel, the Maine Municipal Association (representing Maine local governments) and the metropolitan cities of Portland, Lewiston, Auburn and Bangor.
The first year IPA plan represented a two-pronged approach to meeting the personnel improvement needs of Maine governments. First, the plan aimed at meeting some of the basic education and training needs known to exist among state and local government administrative, professional, and technical personnel. The goal was to offer general management courses to an estimated 655 key Maine public officials.
Second, the first year plan included an assessment of state and local government manpower, training, and personnel service needs to provide a more solid foundation upon which future state/local personnel improvement activities and IPA funding priorities could be built.
[Training curricula omitted]
IV. FIRST YEAR PROGRAM RESULTS
Training program
Utilizing the past experience and resource capabilities of (1) the University of Maine at Orono's Bureau of Public Administration; (2) the Civil Service Commission's New England Regional Training Center; and (3) the International City Management Association, the following training programs were offered to state and local government personnel during the period January 1, 1972 through December 31, 1972:
BPA – Supervision in the Public Service: 13 presentations throughout the state; Developing Communication Skills: 10 presentations; and How to Improve Individual Manager Performance: 2 presentations.
USCSC – Effective Writing Seminar: 2 presentations; Effective Oral Presentation: 3 presentations; and Labor Relations in the Public Sector: 2 presentations.
ICMA – Managerial Grid Seminar: 1 presentation.
The training program was evaluated by: (1) utilizing an evaluation questionnaire with participants at the end of each course soliciting reactions to determine the extent to which the course met the participants' expectations, and needs and suggestions for improving and/or changing the course design, format or materials; (2) analysis of the instructional staff as to how the material appeared to meet participant needs and evaluating the course materials; and (3) determining, to the extent possible, the impact of the training in post-course changes in behavior and on-the-job results. Given the limited resources and a preference for maximum training delivery, post-course implementation of training by participants was measured only through random sampling techniques with trainees and their supervisors.
The results of Maine's first year IPA training programs are extensive with both immediate and long-range impact. Informal examinations conducted by the BPA staff to determine the effectiveness and results of the IPA training indicated: (1) IPA support made it possible for many state and local government employees to participate in training for the first time; (2) low registration fees and regional offerings throughout the state made training convenient and accessible to administrative, technical and professional personnel at all levels of government; (3) participant evaluations indicate that the education offerings provided valuable assistance in improving individual job performance.
Following are a few of the concrete examples from 1972 IPA training that provide a flavor of the benefits employees of state/ local governments received:
(1) The Supervision in the Public Service course provided the following examples of results: (a) The course deals with the supervisor's role in planning and public relations. One participant decided to implement ideas learned to improve the public relations of those working in the town hall. Within days, the feedback from individual citizens was decidely positive and the morale of employees was substantially raised. Ideas learned in the classroom were transferred to the job and have helped to improve the image of that municipal government in Maine; (b) Another example involves a public works supervisor. During the classroom discussion, this individual was exposed to certain ideas regarding the supervisor's role in planning. After the course, BPA's Assistant Director personally visited the public works supervisor who announced that he had become more effective in, planning the daily activities of his employees. He estimated, as a result, that the city saved approximately $1,250 during a one-month period and accomplished
more work, with the same amount of personnel.
(2) The Effective Writing Workshops produced the following: A town manager studied the art of writing letters. He utilized the new techniques back in the office to produce time savings by himself and his secretary in letter writing and allowing him to spend greater time on more crucial problems. Other participants have pointed out that reports that must be prepared are now clearer, more concise, and better organized.
(3) The Effective Oral Presentation and Speaking for Results Workshops are typically evaluated as follows: One participant indicated that the workshop has helped considerably in the interviewing of prospective employees for state service. Many participants and their supervisors reported increased self-confidence in presentations before fellow employees or "outside groups" as a result of this in-service training.
(4) The Labor Relations Workshops provided employees with the basis of labor-management relations in the public sector. A deputy commissioner in state government acknowledged that the workshop had provided him with a badly needed foundation in employee relations which has assisted him on the job. Similar expressions were received from town managers, personnel managers, and bureau heads. The director of nursing at a state hospital commented that she now more fully understands grievances, bargaining impasses, management rights and other assorted concepts of collective bargaining in the public sector.
(5) The program, How to Improve Individual Manager Performance, has been helpful too. A deputy commissioner in state government has taken the techniques of writing position descriptions, and outlining standards of performance and is implementing them throughout his department.
These results are only a small sample of those received. Additional examples are discovered regularly. The important thing is that they add up to increased effectiveness and improved quality of services delivered to the taxpayers of Maine. And in spite of the resource limitations on detailed evaluation of training IPA delivered, the observable impact in Maine has been considerable.
Assessment of manpower and training needs
This part of the IPA first year program involved an assessment of the present and anticipated future demands of Maine state and local governments for training professional, administrative, and technical personnel including: (1) the nature of training needed; (2) the resources presently available; and (3) the unmet needs which already exist or which may be foreseen. The assessment was seen as an integral part of IPA planning and as a significant contribution to the setting of priorities for future IPA funding in Maine.
Beginning in May, 1972 the Bureau training staff surveyed Maine state, municipal, county, legislative, special districts and public officials to determine training needs to improve job performance.
Two advisory groups were utilized to insure the involvement of both state and local government representatives:
1. Local – the Advisory Committee of the Maine Municipal Association
2. State – an Advisory Committee consisting of eight commissioners from state government
Methods of gathering information were: (1) a mailed questionnaire; and (2) on-site visitations by BPA staff in 50 municipalities, all state departments and all counties.
More than 3,750 professional, administrative, technical and supervisory personnel at all levels of Maine government were involved in the survey.
The returns were analyzed and produced the following major findings:
(1) Eighty-eight per cent of the more than 1,000 state employees contacted indicated the need for a continuous, comprehensive career development program;
(2) A priority need for twelve training programs was identified to improve job performance of professional, administrative, technical and supervisory personnel throughout Maine governments and included: Supervision in the Public Service, Group Leadership and Participation, Effective Rapid Reading, Effective Listening, Speaking for Results, Orientation and Development of Employees, Problem Solving, Effective Personnel Practices, Techniques of Employee Motivation, Labor Relations, Principles of Communication, and Work Simplification;
(3) The majority of governmental units/ agencies are not organized to improve job performance of individuals within the agencies, i.e.
(a) They have no training coordinator/director;
(b) Little or no funds budgeted for training;
(c) Employee training needs are not/have not systematically been identified; and
(d) There is no annual plan for training employees;
(4) Only three cities in Maine were found to employ an official designated as Personnel Director and four indicated the use of a personnel board. Personnel duties are administered by the manager or council in 72% of the reporting communities;
(5) Less than 50% of the responding municipalities were satisfied with their existing personnel systems; 33% indicated they needed or would like assistance in improving their personnel system.
The information gathered through the survey is being translated into action plans to meet identified needs. The major portion of the 1973 IPA training program is a direct result of the data collected – a public service training effort planned and conducted on the basis of diagnosed needs.
The major training needs indicated by all levels of Maine government have been or are being developed by the BPA training staff supported by IPA funds: Training programs will be conducted throughout the state so that as many as possible can take advantage of the new training opportunities.
In addition to the statewide training component of Maine's 1973 IPA proposal, a second component will meet the need for personnel advisory and technical assistance services among Maine communities identified in the assessment study. This effort is being undertaken in cooperation. with the Maine Municipal Association.
SIX-MONTH EVALUATIONS
The comments o f IPA training, program participants
The primary objective of IPA training programs provided by the Bureau is to provide the participant with a learning experience that will produce pay-off in terms of results on the job.
Determining the impact of training in post-course changes in behavior and on-the-job results necessitates substantial amounts of time, money and staff assistance not budgeted for in the IPA grant and unwarranted given the limited resources available. In order to assess, to the extent: possible, what each participant transferred from the classroom to the job that may be translated into improved job performance, a six-month evaluation of each course is made. This is done through a questionnaire mailed to each participant and to his immediate supervisor six months after the end of the program.
Among replies from participants when asked at the six-month evaluation "In what specific way did the training program help to improve your job performance?" are the following:
Most indicated that there were ideas, methods or, approaches learned that have helped improve overall job performance. Samples of specific responses as to the way(s) in which the specific training program contributed-to job improvement follow:
In what way did it help your job performance?
Supervision in the Public Service
I have initiated a program for training the personnel who work for me. I have also set up a better system of record-keeping to keep track of personnel.
The action assignments required of the employees under my supervision were very enlightening. and provided me with information as to each employee's particular motivational needs. I feel that this information has assisted me in personnel-related dealings with employees, as well as day-to-day assignments.
Overall office relations have improved. Just knowing others had some of the same problems and hearing their solutions helped also. It gave me the courage to do things which I never would have done before. I especially needed this as I apparently was not a good supervisor. This course helped me to delegate many activities to those under me – something I could never do before.
Thom Willard was a fine instructor.
Job was newly created. I was given 14 employees who had never had a boss looking over their. shoulder and they resented a new man telling them what to do and what not to do. I took the course to see if I could find some way to reach them without firing and rehiring the entire crew and was quite successful in retaining my help and having a good working relationship. Thanks.
Particularly in the area of planning, directing work flows and job assignments. Also in coordinating work in the different units.
Helped my overall performance as a supervisor and I intend to send my highway foreman to this. course at the first opportunity.
More efficiency – less confusion – more self-assurance.
It helped me in setting up a system of planning (organize), so that I could better work with employees. Showed me why a plan was necessary. It also helped me to try to understand the other person's point of view. Looking back into the test, I can still find new and useful ideas.
Developing Communication Skills
The approach of identifying and examining several types of communication patterns was to me especially helpful to evaluate which approach would probably prove most successful in given situations. I have many times in the past six months paused to "think through" the situation in question and tried to make use of information gained in the "Developing Communication Skills" course. I would say it has been very helpful and worthwhile in my work and in community situations.
More aware of importance of effective communication and of training programs which allow people to explore new ideas, evaluate and plan for the future.
The course was "Developing Communication Skills" and it did just that. It provided a framework for using each of the various modes of verbal communication as specific situations demand. It demonstrated how the appropriate mode of communication can expedite getting things done. I have used some of the material in our own in-service training.
Improved ability to motivate and communicate with employees.
Effective Writing
The style and type of letters going from office has changed with vast improvement in style and simplicity. The secretaries approve and find letters easier to write. We have had no adverse comments from our readers so assume acceptance of them.
Evaluation and improvement of original writing. Assistance to others in writing. More effective writing. Increased confidence in writing efforts. On the other hand I find myself mentally revising or critiquing the writing of others. Suggest "others" be invited to seminar.
Effective Oral Presentation
It gave me more confidence in what I am doing on my job. It made me more relaxed when I speak or even when I'm talking to someone else. It has helped me communicate using as few words as possible.
I have been able to better relate to the persons I interview daily using the techniques I learned at the training session. Also, I became Chairman of our Regional Staff Advisory Board and have really been able to capitalize on all the points Mr. Anastasi shared with us. I have a long way to go but feel I have learned to be more clear and a bit more at ease.
It gave me the guidance and confidence, that I needed, to speak before groups. Also made it much easier to arrange and discuss the problems pertaining to my work.
It gave me the self-confidence I needed to speak in groups. I can now organize a presentation and be flexible enough to meet the needs of the group if they wish to digress from planned material.
Better working knowledge of expressing my thoughts and getting my ideas clearly to others.
My participation in the course "Effective Oral Presentation" has without question helped me improve my job performance. I not only learned from Mr. Anastasi's excellent presentation but from the experience gained by my participation. My self-confidence was improved by confirming some of my own ideas and learning new techniques.
What other training programs would you like to see presented?
Would like to return to improve in oral presentation as I feel there is so much more to be learned and am very conscious of this need in my work. It was a great session, most helpful.
Some programs in administration.
It was a bit of a strain – so many nights, but would like a 2-day workshop. My employees could also use these.
Problem Solving.
Inter-Personal Relationships. Human Problems in Management Positions.
Course in the simple use of a transit and the laying out of roads for construction purposes.
Am thinking of a local training course in communications in a broad sense – oral, written, interview type. I do not know how much interest could be developed but think all secretaries for schools, towns, etc. should participate.
Effective Listening.
Effective Writing. Something in the area of state fiscal planning in comparison to program planning.
Training in the field of state government as pertains to understanding auditing practices and personnel procedures.
I'll not suggest any at this time, since so far, the training programs have been excellent.
One-day seminar on Public Relations for office personnel. Seminar on Government Fund Application.
One-day seminar on writing for media (newspapers, TV, radio). One-day seminar on getting jobs done (for secretaries, administrators). Diplomacy with the public.
A detailed educational program which deals with training supervisors in the area of motivation techniques. We find that many supervisors don't know how to approach employees regarding faulty work, loafing, or discipline problems.
I would like to attend the public speaking course. I heard it was very good, tried to enroll in it, but was too late as it was already filled. Would like to see it offered again and contacted when and if it is.
SIX-MONTH EVALUATION
The comments from supervisors of participants in IPA training programs
In our effort to determine post-course changes in behavior and on-the-job results for each participant the immediate supervisor, who has previously been advised that his personnel has completed the training program and who is in a position to observe these features, is asked to indicate the results of his observations.
Most supervisors indicated that there were ideas, methods or approaches learned that helped the training participant improve overall job performance. The following are sample responses from supervisors when asked:
In what way did it help improve his/her job performance?
Supervision in the Public Service
The employee has been able to demonstrate a greater degree of expertise in planning – particularly as it pertains to staff training activities. Ongoing individual supervisory practice has not improved a great deal to date. Employee can intellectualize the meaning and implication of working in harmony with differing personalities, but is unable to appreciate the dynamics of human behavior to point of implementing knowledge into practice.
Employee has shown better ability to plan his work programs and to manage the proper utilization of his men to accomplish work in a manner which is efficient and in which employees can take pride.
Developing Communication Skills
This experience, coupled with similar communications courses thru U of M CED, have helped this employee communicate more effectively with co-workers as well as the public. She is definitely better able to articulate her thoughts and ideas which has resulted in an increased capacity to perform her job well.
Employee has shown a remarkable improvement during the past year. I am sure his time spent at the "Developing Communication Skills" program plus other IPA-sponsored programs he attended, has been most helpful to him and the City. Thank you.
Effective Writing
Much of his written material is more concise and legible. His work suggests that he got a lot out of the course.
Employee has applied techniques learned during the effective writing program in reviewing audit reports written by his staff. As a result, audit reports have become clearer, more concise, and easier to work with.
Style and format of correspondence has been improved.
She learned to save time by typing the new form letters and when she returned showed the other girls how to do the same.
Effective Oral Presentation
Both individuals seem to be much more at ease when speaking with various groups of people. They have both mentioned to me that they attribute much of their success to the courses which the BPA presented.
This employee definitely appears to be more confident in presenting his material to a group.
More self-confidence – better preparation, clearer delivery, etc. An excellent course I am told and this seems evident in improved performance.
Prior to taking this course, employee has always been involved in oral presentations in
health education. Since taking the course, she has been making many more oral presentations and with noticeably more confidence.
More effective public speaker.
What other training programs would you like to see presented?
Oral communications – geared towards improving oral instructions to subordinates to insure comprehension of directions.
More oral presentation on a longer or continuing basis. Use of audio-visual aids. Effective use of news media. Flow to win friends and influence people.
Effective writing.
Communications.
Public Relations.
Supervisory practice.
Other areas of training that would probably be helpful to this organization are first-line supervisor courses.
More of the same, particularly in the areas of inter-group and inter-personal communications.
Training programs for "non-professional" staff in human behavior, communications, inter-office or personal relations.