Wallace Brett Donham

I find from experience both with government agencies and with private business that there are striking differences. One of those differences is that, in government, there is more continuity and definition in the mandate. The limits of action are often clearly defined. in many cases by Congress. No such situation exists in large private business. Dimock says bureaucracies are related, for example, to size. Yet he points out some bearings on bureaucracies of the inadequacies in our federal civil service system and the conflict of loyalties which arises out of it. This, he states, he succeeded in overcoming. I have had contact with several war agencies made up mainly of businessmen. These men rapidly took on bureaucratic characteristics radically different from their own behavior in private life. The only close parallels I find in the areas of private business to the deadening effects of the present civil service are, on the one hand, what one of my old labor leaders used to call the "sonority" system and, on the other, the very real problems faced by management in dealing with labor which arise immediately out of the prolonged governmental support for organized labor-which is in my judgment bad for labor.

In the social sciences there has been a serious gap, except where administration is involved, between the theorist and the man who must act. As a result our social science theory continues to be detached from reality. There is great need for a new social science, namely, the Science of Administration, where social theory and action must meet. Administration as conceived in this paper is, therefore, a social science with its own techniques, its own abstractions clustering around the concept of action through human organizations, and its own problems of theory. It is vitally concerned in integrating other sciences, physical, biological, psychological, and social, at the point where action is involved. Its social importance is great. Indeed if our civilization breaks down, it will be mainly a breakdown of administration, both private and public.

p. 176; cited in: Albert Lepawsky (1949), Administration, p. 194-5

At this point water-tight compartments of university specialization and theories founded on the selected isolation of facts easily break down. Specialized thinking is rarely a sufficient foundation for concrete decisions involving action. The social scientist cannot often form sound administrative judgments solely on the basis of elements which he has picked out simply because they relate directly to his particular specialty. The present emphasis on artificial subdivisions of knowledge and on specialized thinking and teaching in universities, technical schools, and colleges and the relative neglect of administrative problems involving action have a dangerously narrowing effect on graduates of these institutions. While we may and frequently do arouse the intellectual interest of students in a considerable variety of subjects intimately related to the civilization of which they are a part, we pay almost no attention to the web of cross ties among these subjects.

To me, there are multifarious forces at work in government departments which are different from those in private business; the responsibility to and necessary interference of Congress, the responsibility to the President, to defined over-all controls, have little parallel in private business. The power politics of government departments are radically different from the power politics of private companies. The existence of pipe lines into Congress strengthens the bureaucracy against the chief executive of the particular subdivision of government. It may strengthen it against the President of the United States or Congress itself. Dimock himself points out how easily government bureaucracies develop organized opposition to policies involving change. This opposition may in substance, though not in form, sabotage all change which appears to threaten the security of the bureaucracy. Power politics, of course, exists in large private companies; but the urge to expand functions and simultaneously to defend what exists seems to me radically less in the case of well-run, large, private industry than in the case of big departments of the government. The quantitative difference becomes a qualitative change.

Everything ahead of us is dangerous. There isn’t a power the President has asked for that isn’t dangerous. But there isn’t a power or a combination of powers he has asked for so dangerous as continuing to do nothing.

As a result our graduates leave us without having formed the habit of seeking wide generalizations related to diverse variables in the social situations which surround them. Because they lack both habits and methods which lead them to seek generalizations, they become, after they leave us, Specialists themselves and make decisions without the guides to action within their special fields which wider viewpoints might give. To develop them as we must, the artificial dividing lines between social sciences must in large measure be broken down. Specialized training must be both counteracted and supplemented by training which brings in the widest social implications. Otherwise men will not be trained to meet the problems faced by public and private administrators.

The inability of business and political leadership to rise to new heights [required by the] unprecedented situation, [familiar to us now as the Great Depression.. urged for] bold policies...bold anything is needed at this time.

Dimock makes the generalization that 90 percent of the characteristics of public government executive management are identical with those of private executive management. In spite of large areas of similarity, I strongly dissent. I would place the percentage very much lower - whether 30 per cent or SO per cent lower, I shall not attempt to say.

The problem is one in the general physiology of society. The continuance of life and health for any individual depends on maintenance of a moving organic equilibrium within certain definite limits of tolerance. The daily work of the world is done by individuals living their specialized economic and social lives within a moving equilibrium... But specialized progress brought uneven social and economic developments and serious maladjustment. General equilibrium is lost. The limits of tolerance, the margins of safety, are exceeded.

All these associates were willing to help me in expanding my habit of trying to look all around things before interpreting them, as it seemed to me that the administrator should, instead of limiting his range of thought to some specialized point of view.