The clerks on the westerly bound trains are assigned the distributing of mails by route, for all Middle, Western, Southwestern, and Northwestern States, and on the easterly bound trains for the Middle and Eastern States.
When such States as New York, Pennsylvania, Ohio, and Illinois, with respectively 3,070, 3,681, 2,603, and 2,568 post-offices, are taken into consideration, some idea may be formed of the work required in preparing a system of distribution, the vigilance required to keep pace with the frequently changing schedules, and the study of the clerks to properly carry its requirements into effect. Beyond Chicago, in the new country, the work of distribution grows less intricate, but the powers of endurance of the clerks are severely tested. On the line between Kansas City, Missouri, and Deming, New Mexico, a distance of 1,147 miles, the clerks ship for a long voyage—five days on the outward trip and the same on the inward, sleeping and eating on the train.
There are a number of lines in the far West, on which the clerks do not leave the train for a number of days. Throughout the country the total number of pieces of ordinary mail handled by 3,855 railway postal clerks on the lines, during the year ending June 30, 1883, amounted to 3,981,516,280; the number of errors made in their distribution was 958,478 pieces, or a per centage of correct distribution of 99.97. This minutia of detail is applied to the distribution of a vast bulk of mail. It is estimated that in Boston, Massachusetts, between eighty and one hundred tons of mail matter are daily dispatched, and between forty and sixty tons are daily received; while at New York City this quantity is more than doubled. Even figures become interesting when they represent the standard of intelligence and progress, as shown by an increased correspondence and literature. In no branch of the government service, it can be safely said, have the tenets advanced by the advocates of the civil-service reform been so nearly realized as in this bureau of the Post-Office Department even at that period when the initiatory steps now being applied to other departmental machinery were considered all but Utopian,—a system consisting of a probationary period preceding appointment, and promotion from grade to grade, based upon a practical and thorough system of examination, had long since been developed up through an experimental stage to a well-grounded success. The complexity of the postal system, continually varying in detail, demanded a uniform system of giving information, and a corresponding test of its operation. The system of distribution for each State is compiled in tabulated form in a book or sheet, known as a "scheme," for ready reference when on duty, or study when off the road. In thickly-settled States, where numerous railroads cross and re-cross each other in the same county, it is necessary to have the names of the post-offices arranged alphabetically; opposite the name of each office is given all its methods of supply and also the hour the mail reaches that office. In more sparsely-settled States the schemes are arranged by counties; this is done where the majority of the offices in a county are supplied by one or two lines, and the exceptions, which are only specified in detail in the scheme, by other lines or a number of post-offices. In this case the clerk memorizes the supply of the excepted post-offices particularly, the disposition of the remaining post-offices in the county being the same; it is of the first importance to be properly informed in which county an office is located, and the line supplying the principal part of that county. A name prefixed with "north" in one county may have the prefix of "south" in another, or a similar name in a remote county. These schemes are compiled at division headquarters, and the general orders are revised almost daily, informing the clerks of changes affecting the distribution, and also instructions as to other duties. From the schemes mentioned, lists of distribution are made and time computed applicable to each line or train of the States for which mail is selected.
To return from this preliminary digression to the examinations. These examinations are of the most practical character and serve to develop the mental abilities and intelligent understanding of the clerks. To clearly understand the method, the clerk should be followed step by step from the time of his probationary appointment into the service, through the probationary period and his examinations as a full-fledged clerk. After a month's service on a line, the clerk is assigned a day and hour for his examination; here is laid the foundation for future usefulness, the intelligent understanding of a service, acquired by continual study and inquiry, that gives to all occupations that peculiar zest when understandingly rather than mechanically followed. A single State, with the least number of offices, that in the course of duty he will be required to assort, is selected at the first; it is not expected that it will be memorized understandingly, or the location of each office fully known at once, but it forms the basis of inquiry, and develops either future excellence or mediocrity, or total incapacity. The room in which these examinations are usually conducted (excepting when a clerk on a route in a remote part of the division is the subject, in which case he is visited by the examining clerk) is kept quiet, and nothing that will distract the attention allowed. He is placed before a case containing one hundred pigeon-holes, or more, each the width of an ordinary visiting-card, and sufficiently high to contain a large pack of them. Cards are then produced, upon each one of which is printed the name of a post-office, comprising a whole State. The cards are distributed into the case by the clerk being examined and the number of separations made as required when on actual duty in the railway post-office. The number of separations varies according to the connections due to be made; when the line is through a thickly-settled country, the separations are made in fine detail. In the State of Massachusetts there are seven hundred and seventy-two post-offices; and the number of separations made by one line is upwards of eighty. On the train it is necessary to make many (what are known as) direct packages that the examination does not call for. Account is taken of the time consumed in "sticking" the cards, and questions asked to test the knowledge of connections. A large number of questions are asked relating to the Postal Laws and Regulations, as affecting the Railway Mail Service; these latter questions vary in number from fifty to one hundred. When practicable, during the probationary period of six months, one examination is held each month, taking a different State each time.
The results of these examinations are placed on record, and at the expiration of the probationary term, this record, together with the list of errors in sending mail, are forwarded to the Honorable William B. Thompson, General Superintendent of the Railway Mail Service, in Washington, District of Columbia, with a recommendation that the clerk be permanently appointed or dropped out of the service. These examinations are held at intervals among all the clerks to test their efficiency, and as an incentive to study, to keep fresh in their minds the proper disposition of the important mails passing through their hands. In these examinations a good-natured rivalry exists, and a vigilant eye is kept by the clerks that their line shall make as high an average per centage, or, if possible, higher than any other. The per centage of correctness rarely falls below seventy-five; an average is generally made of ninety-five per cent. The list of errors made is closely scanned by better-informed clerks, and no stone left unturned by them to clear their record, and to satisfactorily settle disputed points. These discussions and inquiries are invited, not only that all may feel satisfied with the result, but also that much valuable information is frequently elicited from the clerks, who in many cases are situated advantageously to see where practical benefits may be attained.
During the fiscal year which ended June 30, 1882, there were 2,898 examinations of permanent clerks held, and 3,140,630 cards handled; of this number 208,736 were incorrect, 512,460 not known, making a correct average per centage of 77.05. This record does not include that of probationary clerks. This constant watchfulness, it can readily be seen, redounds to the benefit of the public and results in the most expeditious methods of forwarding the mails attainable. In some cases a test of reading addresses of irregular or difficult legibility as rapidly as possible is given, but this idea has not been generally adopted. The query naturally arises, Is there no incentive to study other than to make a good record? There is; for upon this basis, together with a knowledge of a ready working capacity and application—both great considerations—are the promotions and reductions made. Those in charge of lines are fully cognizant of the status of the men, bearing on all points. The clerks in the service are classified, those on the small or less important routes according to the distance. Our attention, however, is drawn particularly to the trunk lines. The probationary appointee is of class 1, receiving pay at the rate of eight hundred dollars per annum; but at the expiration of his six months' probation, if he is retained, he is paid nine hundred dollars per annum, and placed in class 2. The number of men in a crew on a trunk line making through connections is governed by the quantity of work performed, and generally consists of four men, excepting the fast lines, New York to Chicago and Pittsburgh, where more than one mail-car on a train is required. With four men in a crew the clerk in charge is classed 5, and others successively 4, 3, and 2, and paid at the rate of thirteen hundred dollars, eleven hundred and fifty dollars, one thousand dollars, and nine hundred dollars per annum. In the event of a vacancy in class 5, the records of examinations and errors made in the performance of work are scanned, the relative working capacity of the eligible men in class 4 considered, and a copy of the records, with recommendations, forwarded to the General Superintendent. The gap caused by the retirement of one of class 5, and filled by one of class 4, necessitates promotions from classes 2 and 3, and also a new appointment into class 1, probationary, and after that period is passed into class 2, thus preserving a uniform organization.
The selections for promotion are made from the clerks on the entire line. Thus it will be seen that a graduated system of promotion exists, based upon merit and competitive examination, and which to the fullest extent is practical and theoretically satisfactory to the most exacting civil-service reform doctrinaire. The general supervision of the Railway Mail Service is under a General Superintendent, the Honorable William B. Thompson, located in Washington, District of Columbia. It is divided into nine sections, with offices in Boston, New York City, Washington, Atlanta, Cincinnati, Chicago, St. Louis, San Francisco, and Cleveland, and is respectively under the superintendence Messrs. Thomas P. Cheney, R.C. Jackson, C.W. Vickery, L.M. Terrell, C.J. French, J.E. White, E.W. Warfield, H.J. McKusick, and W.G. Lovell,—men who have risen from humble positions in the service, step by step, to their present positions of responsibility.
It is an erroneous impression that prevails in certain quarters that the forwarding of mails over the various railroads is arranged by postmasters; the especial charge and control of the reception and dispatch of mails is under the Superintendents of the Railway Mail Service, who, in their turn, are responsible to the General Superintendent, who, in his turn is responsible to the Honorable Second Assistant Postmaster-General.
It will readily be seen by the foregoing sketch that a clerkship in the Railway Mail Service is far from being a sinecure, either mentally or physically. As the country increases in population and the system becomes more complex, it is found to be important to the public that the clerks should be insured against removal except for the following reasons: "Intemperance, inattention to or neglect of duty, incapacity for the duties of the office, disobedience of official instructions, intentional disrespect to officers of this or other departments of the government, indecency in speech, intentional rudeness of language or behavior towards persons having official business with them or towards associates, and conduct unbecoming a gentleman." In several annual reports the General Superintendent has urged upon Congress that some provision be made for pensioning disabled clerks. This would seem to be only fitting justice to the clerks, who hourly incur a risk of either limb or life.