We hold that efficiency cannot itself be a "value." Rather, it operates in the interstices of a value system; it prescribes relationships (ratios or … - Clifford Dwight Waldo

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.

Students of administration, writes J. M. Gaus, have become "more uncertain in recent years as to the ends, aims and methods which they should advocate/' It is difficult to view in their entirety and in perspective the writings on public administration that now pour from the presses. But this is hardly necessary to confirm the truth of Gaus' statement.

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