Procedure is not a unique feature of public administration. It is a concomitant of all organized activity, and many procedures are equally usable by … - Clifford Dwight Waldo

Among organization theorists general, if not universal agreement obtains that it is proper to view the development of organization theory as divided into three periods. Conventionally, this "history" is regarded as beginning early in this century; and the three periods are customarily are designed by the terms classic, neo-classic and modern... The classical period has its beginning, in the conventional view, with Frederick W. Taylor and Henri Fayol... [and] reaches its high point in the thirties with the work of James Mooney and of the editors and authors of the Paper in the Science of Administration. The neo-classical wave is seen as beginning with the Hawthorne experiments in the late twenties. These experiments challenge the formality and rationality of classical theory with the "discovery"of human relations.

Procedure, properly applied, allows specialization to be carried to its optimum degree and effects the most efficient division of labor. Procedure not only divides labor; it also divides-and fixes-responsibility. Procedure thus is a means of maintaining order and of achieving regularity, continuity, predictability, control, and accountability. It is a means of maximizing control of the subjective drives of an organization's members, of assuring that their official actions contribute-and, if possible, that their private loyalties conform-to the organization's objectives. From a general political angle, procedure ensures equality of treatment-a value of great significance to the citizen.

The modern period in organization theory is characterized by vogues, heterogeneity, claims and counter-claims.