Bureaucracy in a Government Laboratory

Abstract

CTUAL bureaucracies seldom conform to A the models in the classic literature.' Whenever an organization is studied, its unique features must be considered. Some of the features of bureaucracy as they occur in a naval research and development laboratory will be described here. The aim of this paper is to show how a group of professional scientists and engineers has met the partly conflicting demands of bureaucratic procedures, professional standards, and personal values. In any organization the influence of specific individuals with personal interests and desires is felt. Their influence, together with that of the supervisory training and human relations programs in current use, tends to modify the bureaucratic features. Thus, the rejection of some bureaucratic features is both recognized and approved by many organizations today. Many officials realize that their actions are not always guided by the rational application of bureaucratic rules. Furthermore, in professional groups, officials often refer to professional standards as the basis for their actions. The demands of bureaucratic procedures, professional standards, and personal values affect many aspects of the social system. The succeeding sections of the paper will consider (1) problems of structure and function: principles of grouping, tasks and responsibilities, supervisory roles, and staff organization; and (2) social psychological aspects: attitudes toward bureaucracy, and identification with the organization.2 The laboratory to be discussed conforms to civil service and naval regulations. In addition, it has a specific technical function which distinguishes it from other kinds of government agencies and allies it to non-governmental laboratories. While the laboratory may have many unique features, it also has some characteristics which it shares with other groups of professionals, other research and development laboratories, other naval organizations, other civil service organizations, and other bureaucracies. The laboratory is one department of a naval station. The major facilities of the station are located elsewhere. The department has approximately 400 employees and is organized into staff offices, divisions, branches, and sections. At this location there are units of several other departments which provide services for the entire station and also carry out independent work. The department studied is relatively independent of the station: it works on a different kind of equipment and its separate location allows it considerable autonomy. However, it is a part of a larger bureaucracy consisting of the station and, above that, a naval bureau in Washington. There is exchange of information and cooperation with other naval stations and private firms working on government contracts. Nearly all of the members of the department are civilians, but naval officers hold some administrative and advisory positions. The navy provides certain services to the station, such as the use of naval equipment and manpower for testing.