Use of the staff and auxiliary functions in the United States Bureau of Animal Industry

234 Pages·021.785 MB·English

by  Bartilson, Thomas H

USE OF THE STAFF AID AUXILIARY FUNCTIONS
IS THE
UNITED STATES BUREAU OF ANIMAL INDUSTRY
by
Thomas H. Bart i Is on
Thesis submitted to the Faculty of the Graduate School
of the University of Maryland in partial
fulfillment of the requirements for the
degree of Doctor of Philosophy ^ ?
1960
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UMI Number: DP70266
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this manuscript would not ho complete without the author * s grateful
acIoiowXedgemerrfc of the material assistance ho has received from many
sources in the course of this study. To the numerous busy officials of
th© Buroau of 'Animal industry v&o so generously took time from, crowded
schedules for th© iatorvievm and discussions upon which much of the study
is based and who later critically reviewed various portions of th© manu­
script the author extends his heartfelt thanks,
These officials include Ivlr. K* A# Butler , Assistant Chief of Bureau
in charge of Administrations Dr. A, R* IE Her, Assistant Chief of Bureau
in charge of Food Inspections Dr. Hugh 0* X&Fhoe, Assistant Chief of
Bureau in- charge of Research; St*. William A. DeTaughn^ Head, Robert B«
Harris, Assistant Head, and &r, falasadge W* Little, in charge, 5rjploymeat
Section, of the Personnel Divisions Dr, W. A* Clmstoad, Hoad, Budget and
Fiscal Division, Miss Isabel Allen, in charge, Estimates and Allotments
Scot!on, and Ur* John Tierney,' in charge, Fund Accounting Section of
this Division! tit* L. E. Bar rover. Head, Administrative Services Division
and It*. H* A. Carlson, Assistant Head of this Division! and 13% William J.
Efebs, Administrative Officer for th© Animal Husbandry Division in charge
of that unit*® business office. ?&£!© these experts have assisted ma­
terially in preventing th© occurrence of stisstatements of fact in th©
final preparation of this study, for those -which may inadvertently have
crept into this manuscript th© author alone is responsible. It should be
stated, also, that the analyses, interpretation®, and conclusion® presented
are the full responsibility of the author and are not to be interpreted
as reflecting ©ithor th© official views of the Bureau of Animal Industry
or of any of its key officials vdio have had any connection mdth this study*
The author is particularly indebted to Dr* Joseph II* Kay* Hoad of the
Department of Government and Politics * University of Maryland* undor -whose
helpful and kindly guidance this study lias been conducted. Dr. Ray’s
thoroughness in offering pertinent criticisms and highly useful suggestions
for th® improvement and aor® precise handling of this material and his as­
sistance in helping solve th® problems encountered are deeply appreciated.
TABLE OF C0MTMTS
Page
I THE* FROBLSli.. ............ ......... .......... 1
Application of Public Administration Principles .... 4
Importance of the Staff and Auxiliary Functions........... 5
Application to the Bureau of Animal Industry.............. 7
Purpose and Scope of This Study. ....... 9
II HISTORY AHD FOBCTXOHS OF THE BIXBSMT OF AMIMAL INDUSTRY. .... 14
Early History and Development. .... 14
Bureau Established to 15cet Specific Heeds................ • 15
Present Functions and Responsibilities of the Bureau..... 21
Dork of the Bureau is Widely Scattered...... 24
III ADillMISTRAITVS AMD FUNCTIONAL ORGAIJXZATIOH ...... 25
Office of the Chief of Bureau. .... 26
IJeat Inspection Division. ....... 52
Virus-Serum Control Division.............................. 34
Tuberculosis Eradication Division. .......... 37
Inspection and Quarantine Division. .... 38
Interstate Inspection Division* ........... 41
Animal Foods Inspoction Division. .......... 42
The Pathological Division. ...... 44
The Zoological Division. ....... 46
Th© Anisia! Hus ban dry Division. •• 47
Iloxican-Unitod States Commission for Eradication, of
Foot-and-IIouth Disease • • * 50
The Information Divi si on* ..... 51
Th© Auxiliary Divisions...... 52
Some Observations on Bureau Organisation and Functions.... 52
Pag®
IY THE STAFF FONCTIOH......... 54
Th© Role of th© Chief of Bureau*....„,..... 54
The Staff Function. ............. *....*. 59
Organization of th© Staff Function. ..... 85
Operation of th© Staff Function in th© Bureau.....•••««••. 67
Planning and Policy Formulation in th© Bureau 71
Th© Staff Function of Coordination. *...... 75
The Function of Advice and Counsel. ..... 78
Bureau Is© of the Staff Function Broadly Effective.•••*•*. 79
Y THE PK&SOHHEL FOlCTIOl,....... 85
A Glance at the Past. .... ............................ 84
Present Organization and Functions............ 85
Comparison of Pact and Present Personnel Operations....... 92
Flow of Personnel Material to Lin© Divisions....*.*....... 96
Relationship with Department Personnel and Civil Service
Commission. .... 98
Special Services to Operating Programs........ 100
Personnel Division Program Developments.........»....... 102
Some Problem Areas......... 105
Some Intemal Problems of th© Personnel Division.......... 108
Importance in Bureau Administration* ..... Ill
YI THE BUDGETARY F01CTIOH...... 112
Brief History of the Bureau Budget Function. ....... 116
Current Bureau Budget Organization .... 118
Budgetary Procedure in th© Bureau .... 122
Importance of This Function in Bureau Administration...... 129
Special Budgetary Problems ........ 131
Pag©
Federal Budgetary Process Bader Review* ....... ... 134
Bureau Budgetary Problem A r e a s . 137
m i IBB FISCAL AG&XSKtmi OTCTIGff........... 143
a© Audit and Fiscal Control Section. ...... 144
Th© Fund Accounting Section. ....... 146
Background of the Fiscal Function in the Bureau.•»•*....«• 149
Baportanc© to Bureau Administration* .... ISO
Governmental Accounting Always a Serious Problem. ..... 131
Bureau Problem Areas in the 'Fiscal Function. .... IBS
Fiscal Procedures in Constant Process of Evolution*....... 139
rut THIS ADMINISTRATIVE SERVICE FUNCTIONS .... 160
History of Those Functions in the Bureau.................. 161
Functions and Duties of th© Division. .......... 164
Work of the Contracting and Leasing Section....... 167
The Property end Space Management S e c t i o n . 169
Work of th© Management Procedures Section. ...... 171
Punotioois of the Records Management Section. .... 172
Operation of These Functions in. th© Bureau. ..... 175
Importance of These Function# in Bureau Administration. •.. 177
These Function# Governed by Minute Buies and Regulations.. 176
Special Problems Must Be Handled Effectively* ..... 181
Other Problem Areas in This Field.... ....... 183
m eklati^shifs... .... ise
A Difficult Area of Adminlstration• ........... 186
Msaas of Improvement in This Area of Administration. 190
Th© Place of Field Work in th© Bureau*.................... 194
Working Relationships with Field Activities. ...... 196
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CHAPTER I
HIE PROBLEM
Tho past IT years have witnessed a rapid and extensive growth. In
the number, sisse, functions and spheres of Influence of governmental
agencies, particularly at the Federal level# This development has inten­
sified many of the problems of effective public administration, such as
those involved in organising, coordinating, and administering organisa­
tions of substantial sis© in a manner that will most efficiently and ec­
onomically accomplish the end purposes for mich they were established.
In recent years, such problems have occupied alike the increased atten­
tion of alert administrators and that of serious students of public ad­
ministration in an effort to improve acbsini strut ion in this important
area and make it more precise and effective in the public interest*
Prominent in this situation 2ms boon the problem of making most ef­
fective us© of the staff and auxiliary functions* such as those concerned
with th© personnel, budget, fiscal, and administrative services areas of'
administration* That such staff and auxiliary functions, Y&ten properly
administered and used, can materially increase tho effectiveness of an or­
ganisation lias boon well established, particularly in recent year®* That
such functions con also present serious and disabling administrative prob­
lems and pitfalls, if not soundly coordinated with the needs, purposes,
and functional operations of the organisation, 3ms become equally apparent#
Administration can perhaps best be defined as a system of working to­
gether to get things don©. In such definition lios th© key to tho proper
and most effective use of the staff and auxiliary functions. Careful and
well thought out organization is -vital to any activity, whether private
or public, and is imperative, of course, in the successful admimi strati on
and op oration of the largo governmental agencies which w© have today.
One of the most characteristic and significant aspects of modem
government is tho development in recont years of a sharpened specialisa­
tion of function and assignment* Such specialisation is continuing to
broaden and deepen, partly as a- normal growth of administrative need and
experience and partly as a result of the increased availability of nor©
specialised education and training in tho various aspects of public ad­
ministration# Xhus, in practice, a personnel mtm today nay bo not merely
a broad expert in all phases of tho personnel fields he is more likely to
be a specialist in employee relations or classification or recruitment*
A budget man is more likely to bo a specialist in budget justification
or budget control % the property i.m a specialist in procurement or prop­
erty records or space control or one of the other specializations which
have been developed in this field*
Such sharply defined specialization can be a two-edgod sword to an
administrator* It affords him an excellent opportunity for clearly delin­
eating the areas of responsibility end action in the units of his organi­
sation* This can work for an increased mass production of one results and
for more efficient production* It develops special talents among his em­
ployees, enables than to work on specialised assignments which they m y
profor, and thus can bo a potent influence on morale* it also affords an
excellent opportunity for identifying end correcting problem areas in the
organization* On the other hand, unloss carefully handled, such special­
ization can develop an exaggerated opinion of the importance of a specific
function* It can build up the foe ling that the function is of most im-