John Wiley & Sons, 1958), pp. 26-27. 14. Harold Guetzkow, Interagency Committee Usage, Public Administration Review, Vol. 10, No. 3, Summer 1950, p. 190. 15. Gulick and Urwick, op. cit. 16. program is described in some detail in Allen Barton, et al., Decentralizing City Government (Lexington, Mass.: D.C. Heath/Lexington Books, 1977). 17. John Lindsay, Program for the Decentralized Administration of Municipal Services in New York City Communities, Office of the Mayor, December 1971. 18. Community schools and elementary schools are not truly separate field services, but their relationship is more complex than different levels of the same field service. elementary school principal reports to the community school superintendent, who is responsible to both the Board of Education and the local Community School Board. This relationship does not affect our findings because only one response category was used for public schools. 19. number of factors extracted from a factor analysis is normally determined by the minimum eigenvalue specification. Following accepted conventions, only factors with an eigenvalue of 1.0 or greater were extracted. 20. Tom Burns and G. M. Stalker, Management of Innovation (London: Tavistock Publications, 1966), pp. 5-6. 21. For an application of this approach to administrative duplication, see: Martin Landau, Redundancy, Rationality, and the Problem of Duplication and Overlap, Public Administration Review, Vol. 29, No. 4, July/August 1969, pp. 346-358. 22. seminal article suggesting that the multiplicity of political units may be necessary to satisfy a multiplicity of different interests is: Vincent Ostrom, Charles Tiebout and Robert Warren, The Organization of Government in Metropolitan Areas: A Theoretical Inquiry, American Political Science Review, Vol. 60, No. 4, December 1961, pp. 831-842.