Research in Los Angeles County government: Development of the Bureau of Administrative Research

150 Pages·06.994 MB·English

by  Hazen, Wilfred Potter

RESEARCH IN LOS ANGELES COUNTY GOVERNMENT:
DEVELOPMENT OP THE BUREAU OF ADMINISTRATIVE RESEARCH
A Thesis
Presented to
the Faculty of the School of Government
The University of Southern California
In Partial Fulfillment
of the Requirements for the Degree
Master of Science in Public Administration
by
Wilfred Potter Hazen
June 1942
UMI Number: EP71296
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This thesis, written by
........ Wilf red Po11 e r Hazen
under the direction of AiS__ Faculty Committee,
and approved by all its members, has been
presented to and accepted by the Council on
Graduate Study and Research in partial fulfill­
ment of the requirements for the degree of
Master of Science in Public Administration
Dean
Secretary
Date...
Facility Committee
C/ffairman
TABLE OF CONTENTS
CHAPTER PAGE
I. BACKGROUND . ................................ 1
The problem....................• ......... 1
Historical approach to research . « ........ 2
Research movement in American history • . . . 3
The research movement and scientific management 7
Research movement in Los Angeles........... • 8
II. THE BUREAU OF EFFICIENCY...................... 10
Legal b a s i s ............................... 10
Early history............................. 11
Post-war developments • • • • • • • • • • • • 15
First real expansion • • • • • . • • • • • • • 17
Departmental surveys begin .................. 17
Separation of staff; creation of staff director 19
Further steps toward separation ......... 20
Expending scope of Bureau studies.......... 24
Final separation of Research Staff from Bureau 26
III. THE DEPARTMENT OF BUDGET AND RESEARCH........ 28
Legal b a s i s ............................... 28
Reasons for establishment of the department • 29
Original organization ...................... 31
Subsequent three divisional organization . . . 31
Increasing responsibilities of department . . 34
Abolition of department.................... 35
iii
CHAPTER PAGE
IV. THE BUREAU OF ADMINISTRATIVE RESEARCH........ 36
Reasons for establishment of the Bureau . . . 36
Legal basis 37
Organization ............................. 38
Policy regarding acceptance of studies . . . 38
Comparison with Bureau of Budget and Efficiency,
City of Los Angeles • • • • • 41
Present Bureau personnel— number and qualifi­
cations ............................. 42
V. BUDGET RESEARCH............................. 43
Importance of budget research .............. 43
History of budget research in the County . ♦ 43
First complete budget analysis.......... 45
Appointment of budget expert to staff . . . 46
Budget Procedures Ordinances .......... . 47
Organization of bureau for budget work . . . 52
Actual budget preparation . . . . 52
Early steps....................... 53
Working papers provided .......... . . . . 53
Staff conferences........................ 55
Departmental contacts............. 56
Departmental budget hearings........... 57
Preliminary budget adopted . . . ........ 57
Quarterly allotments.................... 58
iv
CHAPTER PAGE
Final approval............................ 58
County Budget L a w ...................... 59
71. GENERAL RESEARCH............................. 60
Numbering of studies.................... 60
Scope of studies........................ 61
Departmental studies...................... 61
Studies by outside experts................ 62
Problems of mileage and County cars • . . . 63
Studies which used several staff men • • • • 64
Investigation of sales proposals.......... 65
Data accumulation........... 65
Digests of departmental reports.......... 66
Digests of legislative bills .............. 67
Joint surveys........................... 67
Humorous studies .......................... 68
Work load statistics and reasons for lack of
validity................................. 69
VII. PRESENT BUREAU PROCEDURE...................... 75
Preliminary steps for as tudy— assignment • • 75
Study in hands of staff man— research techniques 79
Sampling................................. 79
Field investigation...................... 80
Questionnaire ........................... 81
Schedule................................. 82
V
CHAPTER PAGE
Time and motion study...................... 62
"Pick and Shovel." ........... 85
Interview ......... 84
Combinations............................. 84
Preparation of report ........................ 84
Report to the Director ........... 86
Approval by Director................... 87
Completion of office routine— indexing and
filing................................... 89
Transmittal................................. 91
VIII* OTHER BUREAU ACTIVITIES........................ 92
Student internship program......... • • • • 92
Prevailing Wages-Salary Ordinance ............ 97
Mileage permits............................. 98
Legislative advice............. 99
IX. VALUE OF BUREAU AND ITS FUTURE................ 100
Value of the Bureau.......................... 100
Financial value of studies............. • • 100
Length of reports............... 102
The Bureau and the war effort......... . . • 103
Suggestions to improve the Bureau . . . . . . . 105
The future of the Bureau.................... 107
BIBLIOGRAPHY..................................... 109
LIST OF CHARTS
CHART PAGE
1* Organization Chart— Department of Budget and
Research, After September, 1937 ............... 33
2. Organization Chart— Bureau of Administrative
Research, After January, 1942 ................. 40
3* Work Load Statistics, 1926-1942, Bureau of
Efficiency, Department of Budget and Research,
Bureau of Administrative Research............. 71
4* Analysis of Reports Made, 1940-1941, Bureau of
Administrative Research ...................... 72
LIST OF PLATES
PLATE PAGE
1* Study Assignment Card....................... 77
2
. Annual Staff Record C a r d ............. • . • 78
3* Intradepartmental M e m o ...................... 85
4* Bureau Stationery .................. 88
5. "Face-Sheet"............................... 90
CHAPTER I
BACKGROUND
The problem. How many persons at sometime or other
in their experience, have not expressed the wish that they
might "he in two places at the same time"? To multiply
this wish five-fold or ten-fold might seem to he ashing more
than the impossible, hut, in effect, this is what administra­
tive research achieves* Administrative research multiplies
many times over the places to which the administrator can
go, and increases greatly the range of his effectiveness*
It provides the extra eyes, ears, hands, and time necessary
to make all sorts of investigations and to present the find­
ings to the administrater in order that he might deal intel­
ligently with the developing problems of government* This
thesis deals with the development and present activities of
one of these agencies— the Los Angeles County Bureau of
Administrative Research— which has achieved national reputa­
tion as a leader in the field of governmental research* The
development of this Bureau will he shown by following the
history of its two predecessors; while explanation of the
present operation of this Bureau in its general and budgeting
research work will bring the story of this research agency
up to date* The complete budgetory program is outlined and
the progress of a study through the office is shown* In con­
clusion, certain recommendations to improve the Bureau are