A DISCGDPSE Oil Pr(G BLEEP OP EAEAGEEEET PLANKING IN TEE PUBLIC SERVICE V.ITH SPECIAL REFERENCE TO TEE RESPONSIBILITIES OP TEE SUPERVISOR A Thesis Presented to the Faculty of the School of Government The University of Southern California In P artial Fulfillm ent of the Requirements for the Degree Plaster of Science in Public Administration by Jess N. Swanson June 1942 UMI Number: EP64456 All rights reserved INFORMATION TO ALL USERS The quality of this reproduction is dependent upon the quality of the copy submitted. In the unlikely event that the author did not send a complete manuscript and there are missing pages, these will be noted. Also, if material had to be removed, a note will indicate the deletion. UMI Dissertation Publishing UMI EP64456 Published by ProQuest LLC (2014). Copyright in the Dissertation held by the Author. Microform Edition © ProQuest LLC. All rights reserved. This work is protected against unauthorized copying under Title 17, United States Code ProQuest ProQuest LLC. 789 East Eisenhower Parkway P.O. Box 1346 Ann Arbor, Ml 48106- 1346 This thesis, written by ...... JESS N. SWANSON........... M under the direction of hiLs. 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 /n Secretary Date...Xim&t...19A2......................... mmittee / PREFACE The m aterial contained in this thesis is one d istin ct part of a more extensive study en titled Supervision in Public Management which is being conducted by Professor John M. P fiffner and a sta ff of research assista n ts. The broad outline of the study was conceived by Professor Pfiffner; however, the detailed break down in which the study appears is the author’s. In writing the original manuscript the footnote and citatio n forms of the commercial publisher were used, and through permission granted by the Graduate School the same form is used throughout this thesis including the b ib li ography. TABLE OF CONTENTS CHAPTER PAGE INTRODUCTION 1 PART I ORGANIZATION FOR MANAGEMENT PLANNING I. TPIE GENERAL TESOFY OP; PLANNING .......................... 10 Vho should be responsible for planning . . 10 The integrated planning structure . . . . 13 Levels of planning .................................................. 17 II. TEE PLANNING AND PROCEDURES DIVISION . . . 26 Location of the planning and procedures division ...................................................................... 26 The functions and duties of the planning and procedures division . . . . 31 Internal organization of the planning and procedures division ................................... 36 I I I. TEE AUTHORITY AND OPERATING RELATIONSHIPS OF TEE PLANNING AND PROCEDURES DIVISION FTTH SUBSIDIARY PLANNING STAFFS AND OPERATING DIVISIONS . 39 Operating relationships ........................................ 39 The functional department head as an agent in the integrated planning s t r u c t u r e ..................................................... 52 V CHAPTER PACE IV. TEE SUPERVISORS RELATION TO PLANNING . . . . 60 Placing responsibility on the line . . . . 60 The supervisors responsibility to develop a co-ordinated work program . . 64 The workers part in planning ......................... 71 PART II THE TECHNIQUES OF PLANNING I. APPLICATION OF THE TECHNIQUES OF MANAGEMENT PLANNING .................................................. 73 The work flow s t u d y .................................................. 82 Sim plification and synthesis .............................. 85 II. THE RELATION OF STANDARDS OF PERFORMANCE TO SUPERVISION ............................................................ 95 The philosophy with standards should be approached in terms of achieving better s u p e r v i s i o n ................................................................. 97 Measuring production or service rendered . 100 Measuring quality of performance . . . . . 108 Determining the effort which should be expended in attaining the objective . . 109 Special considerations in establishing standard time allowances 125 vi CHAPTER PACE III. USING STANDARDS OF PERFORMANCE AS A SUPERVISORY A I D ........................................................ 130 Work programming and budgeting . . . . 130 Determination of proper work loads and allocation of personnel .............................. 132 Scheduling and co-ordinating the productive process ................................ 135 Delegating and controlling .............................. 138 Rating and disciplining ................................... 143 Improving Performance ........................................ 14 6 Improving morale ....................................................... 150 The use of costs as a measure of p e r f o r m a n c e ........................................................... 151 BIBLIOGRAPHY ................................................................................ 157 APPENDICES: A--Deleted organization chart of a large government agency showing the relation of an integrated planning structure to the general organization ........................................ 163 B--Q,uestionnaire used by the United States Department of Agriculture in work sim plification study ........................................ 164 C--Example of a work flow c h a r t ......................... 165 INTRODUCTION hhat is planning?'* Planning is a cover-all word with various meanings for different people. Thus in public administration the term has been used most widely, and proba bly f i r s t in point of time, in connection with city planning which is a form of physical planning. In the field of supervision, however, the usage is that of scien tific manage ment. The very heart of Fredrick Winslow Taylorrs system was the planning department of the factory wherein special ists planned operations and work flow. These are TaylorTs own words: . . .In the case of a machine shop which is managed under the modern system detailed written instructions as to the best way of doing each piece of work are prepared in advance, by men in the planning department. These instructions represent the combined work of several men in the planning room, each of whom has his own speciality, or func tion. One of them, for instance, is a specialist on the proper speeds and cutting tools to be used. He uses the slide-rules which have been, described as an aid, to guide him in obtaining proper speeds, etc. Another man analyzes the best and quickest motions to be made by the workman in setting the work up in the machine and removing i t , etc. S till a third, through the time-study records which have been ac cumulated, makes out a time table giving the proper The section en titled "That is planning” was written by Professor John Ivl. Pfiffner as an introduction to this study when it was started by him in January, 1940. It is reproduced here with his permission. 2 speed for doing each element of the work. The directions of a ll these men, however, are written on a single instruction card, or sheet. These men of necessity spend most of th e ir time in the planning department, because they must he close to the records and data which they continually use in their work, and because th is work requires the use of a desk and freedom from interruption. Human nature is such, however, that many of the workmen, if left to themselves, would pay but l i t t l e attention to their written instructions. It is necessary, there fore, to provide teachers (called functional foremen) to see that the workmen both understand and carry out these written instruct ions The planning approach as just outlined today consti tutes the essence of basic operations in a ll well-managed industrial u nits. To be sure, certain aspects of Taylor’s system, such as the functional foreman, have not been as wholeheartedly embraced as others. Furthermore, the rigid application of time-and-motion study has frequently run up against the obstacle of obstinate human nature. Nevertheless, the essence of Taylorism is today very v irile and tenacious. Indeed, management planning seems to a ttra c t more attention and command greater prestige as the years go on. It is only rather recently that one has heard the wrord planning, used in the above sense, applied to the internal management phases of government. It probably was brought in by some sc ien tific management men who took ^Fredrick V. Taylor, The Princlples of Scientific Management (Harper & Bros., New York, 1911), pp. 122-123. 3 positions in Washington. Some of them were employed in the old Bureau of Efficiency; and when that was abolished they found their way into the Farm Credit Administration, the Treasury Department and elsewhere. It Is interesting to see a few of them now in positions of genuine administrative leadership, for example McReynolds of the White House s ta ff, and Ballinger of the Treasury. A number of management engineers came into the Federal Service during the depression of the 1930*s, which accounts for the exceptionally large and active Washington chapter of the Society for the Advance ment of Management. The result is that one hears the term f,planningfl applied to internal management much more often in federal government than state and local. Management planning is in essence based upon research and fact-finding. It studies, investigates, gathers data, secures a ll of the available data; organizes these data so as to reveal th eir true meaning, and. comes out with a plan of action. The aim is to define the purposes and objectives to be accomplished; know a ll of the factors and information bearing on getting the job done; and then find out the best way to proceed, hith those who may in sist that there is no one best way for any particular task or assignment, but that each may be done equally well in several ways, there is no inclination to quarrel here. Scientific management does not in sist on a single nbest way; but It does demand the right