Both are true, but it’s not a total black hole. There are two different things going on with NYCAPS. Many postings are provisional: the agency needs a body now, but the title might later be filled by someone who actually took the civil service exam and got on the list. So yes, some positions are posted with an internal candidate in mind, but agencies genuinely do hire people with no city experience into provisional admin titles because the pay is not competitive enough for everyone.
The key is to make it easy for an HR analyst to see the match. Mirror words from the posting like 'timekeeping,' 'data entry,' 'scheduling,' and don't just describe restaurant work as 'serving' — mention reconciliations, managing reservations, ordering, handling cash drawers, etc. Then create saved searches on NYCAPS, and also check CUNY, Health + Hospitals, and other quasi-city systems. H+H uses their own portal.
I once applied to a city title in July, didn’t hear back until October, and by then I’d already done a civil service exam and got a list number. The list is worth more than any single application. I’d sit for Admin Assistant, Staff Analyst, or any exam you qualify for. The biggest caveat is patience; this can be a six-month to a year process. If you need immediate income, keep interviewing elsewhere.