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Paul Reichel Falzone
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A COMPARATIVE ANALYSIS OF EXECUTIVE'S ROLE IN

BUSINESS AND LAW ENFORCEMENT

BY

Paul Reichel Falzone

AN ABSTRACT OF A THESIS

Submitted to
Michigan State University
in partial fulfillment of the requirements
for the degree of

MASTER OF SCIENCE

School of Police Administration and Public Safety

1965

APPROVED W (9%

hairman)’

 

 

ABSTRACT

A COMPARATIVE ANALYSIS OF EXECUTIVE'S ROLE IN
BUSINESS AND LAW ENFORCEMENT

by Paul Reichel Falzone

This thesis examines the basic duties of police and
business executives in an effort to determine the similari-
ties and dissimilarities of function of these positions. It
is hypothesized that administrative duties and the skills
necessary to perform them in a police organization, as far
as the art of administration is concerned, are similar in
many respects to those required in non-police organizations.
The study is limited to the extent that it centers upon ad-
ministrative responsibilities.

A functional model of an executive is presented and
utilized as a comparative tool. It is selected for its
versatility and serves as a frame of reference for studying
the two executive groups. This prototype provides the basis
for an analysis of the literature and field studies.

The review and analysis of the business and police
literature reveal close similarities and generally support
the hypothesis. Both factions describe almost identical

duties as those belonging to persons serving in executive

Paul Reichel Falzone

capacities. Differences largely involve matters of termi-
nology. The police and business literature contain identical
descriptions of core duties which coincide with the model.

Eight case studies are developed and discussed.

They result from interviews with four police and four
business executives. The findings indicate the positions to
be quite similar. The executives perform like activities in
meeting the responsibilities of their respective positions.
Exceptions are noted, but in all cases the reason for their
being outside the discretion of the administrator involves
organizational structuring and not the ability of the execu—
tive to perform in that area.

The data supports the conclusion that the adminis-
trative duties of police and business executives are very
similar. The literature and case studies support the con—
tention put forth in the hypothesis.

Further quantification and qualification of this
study is strongly recommended. The author advocates the use
of a more detailed model and the inclusion of additional

interviews in greater depth.

A COMPARATIVE ANALYSIS OF EXECUTIVE'S ROLE IN

BUSINESS AND LAW ENFORCEMENT

BY

Paul Reichel Falzone

A THESIS

Submitted to
the College of Social Science
Michigan State University
in partial fulfillment of the requirements
for the degree of

MASTER OF SCIENCE

School of Police Administration and Public Safety

1965

 

ACKNOWLEDGEMENTS

I wish to express a deep feeling of gratitude and
appreciation to Mr. Raymond T. Galvin for his patient
guidance and invaluable assistance in helping me to complete
this project.

Also, I am indebted to my late grandfather Paul
Falzone and parents Mr. and Mrs. Anthony P. Falzone. With-
out their foresighted guidance and sustenance, this thesis

would never have been possible.

ii

TABLE OF CONTENTS

CHAPTER

I. INTRODUCTION . . . . . . . . . . . . . . . .
Statement of the Problem . . . . . . . .

Key hypothesis to be investigated .

Methodology . . . . . . . . . . . .

Importance of the Study . . . . . . . .
Definition of Term Executive . . . . . .

Organization of the Remainder of the
TheSiS O O O O O O O O O O O O O O O 0

II. A FUNCTIONAL MODEL OF AN EXECUTIVE . . . . .
III. REVIEW AND ANALYSIS OF THE LITERATURE . . .
The Functions of the Police Executive .

The Functions of the Business Executive

Analysis of the Literature . . . . . . .

Analysis of the police literature .

Analysis of the business literature

Police and business literature
compared . . . . . . . . . . . . .

The literature and the key
hypothesis . . . . . . . . . . . .

IV. CASE STUDIES . . . . . . . . . . . . . . . .

Methodology . . . . . . . . . . . . . .

iii

PAGE

Orb

ll
13
13
25
52
52

55

56

58
61

61

CHAPTER

Police Case Summaries . . . . . .

Case summary No. l . . . . . .
Case summary No. 2 . . . . . .
Case summary NO. 3 . . . . . .

Case summary No. 4 . . . . . .

Business Case Summaries . . . . .

Case summary No. l . . . . . .
Case summary No. 2 . . . . . .
Case summary No. 3 . . . . . .

Case summary No. 4 . . . . . .

Summary of Comparative Discoveries

Police case study summation .
Business case study summation

Comparative findings . . . . .

V. SUMMARY AND CONCLUSIONS . . . . . . .

BIBLIOGRAPHY

Conclusions . . . . . . . . . . .

Need for Further Research . . . .

A Question for the Police Field .

iv

PAGE
62
62
66
69
72
76
76
80
83
86
89
89
89
9O
93
94
94
94

96

LIST OF FIGURES

FIGURE PAGE

1. Columbus Division, NOrth American Aviation,

Inc., Model of Management Practice . . . . . 44

2. Police and Business Terminology Describing
Executive Functions . . . . . . . . . . . . 57
3. Comparative Listing of Core Executive
Duties in the Police and Business Fields . . 58
4. Comparative Listing of Executive Duties Con—

tained in the Police and Business Litera-
ture and the Model . . . . . . . . . . . . . 6O

5. Comparison of Case Study Results . . . . . . . 92

CHAPTER I
IN TRODUCT ION

Within any organizational setting, there exists a
disparity of function between the administrative and oper-
ational levels. The tasks performed by each require
different abilities and skills in the implementation of
their respective responsibilities. In day to day activities,
the role of the administrator is often distinct from the role
of those performing Operational duties. The qualifications
necessary to participate successfully in an organization at
the functional level are not similar to those required to
participate in the same organization in an administrative
position.

Essentially, the services provided to an organi-
zation by the individual members of that structure can be
classified into two categories:

1. Managerial
2. Nonmanageriall
The managerial level is primarily responsible for

arranging the resources available in a given enterprise in

 

1Robert Tannenbaum, Irving R. Weschler, and Fred
Massarik, Leadership and Organization (New York: McGraw—
Hill Book Company, 1961), p. 243.

such a way as to achieve the common objective(s) of the
organization. The basic components of the managerial
function are as follows:
1. Leadership-~inspiring the whole organization and
carrying it foreward toward the realization of

objectives.

2. Organization——developing appropriate form and
function for the attainment of the objectives.

3. Administration--providing the policies and
methods by which objectives can be realized, and
marshaling the physical and human resources.

a. Policy making--anticipating the future and
planning for it, laying down policies for
securing objectives, and modifying ob-
jectives and policies for better results.

b. Executive action--carrying out and in-
terpreting the policies and dealing with the
present problems and difficulties which arise
from day to day.

c. Control--knowing that the execution is pro-
ceeding to plans and policies laid down--with
a view to further policy making and planning.

4. Coordination—-at all times securing harmony of
action toward the objectives, through leadership,
organization, and administration.

The nonmanagerial members of the organization per-
form those Operations needed to directly carry out the goals
of the enterprise. They consist of the functions that the
organization was initially created to perform. Through

their realization, the fundamental organizational objectives

are directly attained.3

 

2Mary Cushing Howard Niles, Middle Management (New
York: Harper and Brothers, 1941), p. 15.

3O. W. Wilson, Police Administration (New York:
First Edition, McGraw—Hill Book Company, Inc., 1950), p. 22.

The police setting. The police sphere provides no
exception to the above delineation of managerial and non—
managerial functions. During daily operations, the role of
the police administrator is quite distinct from that of
those performing operational tasks. In fact, many large
metropolitan police agencies have gone to great lengths to

clearly define this organizational separation.

.AE.§£§§ g; mutual concern. Police and business
organizations share many similar problems. The author
recognizes at the outset that goal differences exist; but,
purely from an administrative point of View, there appear to
be a large number of parallels.

Business enterprises are oriented toward a profit
objective while police agencies stress public service. Both
entities, however, possess a common interest in areas such
as upgrading personnel selection, discovering means to pro-
mote efficiency, seeking ways to improve their product, be
it goods or services, and developing methods to recruit,
cultivate, and utilize manpower to its fullest potential.
The areas of mutual interest mentioned are a few in a realm
of many, but the point at hand is clear. Administratively,
police departments and business establishments share many
interests. In short, what may prove beneficial to one type
of structure may well be a boon to them all.

There has been much said of the universality of the

executive role. An analysis of this position through a

comparative study of business and police executives serves

as subject matter for this thesis.
I. STATEMENT OF THE PROBLEM

Basic operations within the police frame of reference
involve preventive and enforcement functions. Accompanying
these basic activities are the multitude of subtasks and pro—
cedures that have no direct bearing upon executive duties.
Yet, it is at this level and according to these tasks that
the police field inducts and trains its members irrespective
of their future potential as administrators. In effect,
everyone possessing certain rudimentary qualifications is
allowed to compete for a beginning position; later, the un—
fit are eliminated, and the qualified trained for duty.
Through this method it is hOped that some recruits will
possess the attributes necessary to become administrative
leaders.

The thought that in order to be a good administrator
one must first perform operational duties permeates the
police field in the realm of promotional policies. The
International City Managers' Association states:

The police administrator drawn from the ranks has
the important advantage of knowledge of police
techniques--a knowledge which can be acquired only
by experience. . . . The administrator who has not

risen from the ranks is, of course, in a more
difficult position. At best he can merely select

a few trusted advisors within the force and rely
upon them in forming his personal judgements. . . .

The result of this philOSOphy is that the first few years of
a police career consist of learning basic skills. All at-
tempts are directed at making the trainee a good patrolman
without consideration of his potential ability regarding
leadership or managerial ability.

On the other hand, corporate and business enterprises
have recognized the fact that Operational and administrative
functions bear no direct relationship to one another in
terms of the versatility and capacities necessary to perform
their respective assignments. Their view has been one of
emphasizing the fact that one does not have to learn Oper-
ations to the extent of a practitioner prior to becoming an
administrator. Thorough familiarization with this level is
all that is necessary.

This View held by many non—police organizations has
resulted in the recruitment and employment of future ad-
ministrators at a "junior executive" level. The first few
years of a new career are Spent following a pre—planned pro—
gram specifically designed to develop administrative ability.
Time is not wasted to any great extent learning fundamental
chores. Thus, the organization is assured a pool of man-

power from which they may draw as the need arises.

 

4The Institute for Training in Municipal Adminis-
tration, Municipal Police Administration (Chicago: Fifth
Edition, The International City Managers' Association,
Publisher, 1961), p. 77.

 

Most police organizations begin management training
with promotion, and the personnel involved are expected to
make a radical shift from an operational capacity to one ad-
ministrative in nature without any real preparation.

These divergent views lie at the heart of the
problem. There appears to be a real need for an executive
training program parallel to those that exist in the business
world within the police realm, but this contention is only
useful if the executive's role is analogous in business and

police organizations.

Kev hypothesis to be investigated. It is hypothe-
sized that administrative duties and the skills necessary to
perform them in a police organization, as far as the art of
administration is concerned, are similar in many respects to
those required in non-police organizations.

The thought to compile this thesis along this line
occurred while reviewing the text Police Executive Develop-
ment. In its pages Germann states:

In recent years there has been great progress in
the development of executive talent in the world
of business and industry-—but almost no attention
given to this matter in the sphere of law
enforcement.

The demand of modern business for large numbers of
skilled administrators and for individuals of out-

standing executive talent is increasingly pressing.

. . . An examination of business and industry dis-
closes that they have found a distinct solution to

this problem-—a solution which in great measure,
can be applied within police agencies.

The author pondered the question pertaining to the
applicability of business and industrial methods of adminis—
trative development to police organizations. This study
compares the positions of executives in both police and non—
police agencies on a functional basis in an effort to de-
termine whether or not the corporate approach to executive
development would, in the final analysis, be applicable to

police organizations.

Methodology. The thesis compares the positions of
executives selected from both police agencies and organi-
zations engaged in private enterprise. Executives from both
factions were analyzed in order that similarities and dis-
similarities of function could be discovered between them.

1. A functional model of an executive is constructed
and presented in Chapter II;

2. Next, the model is tested for accuracy through.a
selective review and analysis of the literature
available;

3. Case studies are prepared comparing police and
non—police executives in relation to the model;

4. Finally, an analysis of the contention stated in
the hypothesis is offered utilizing a literature
review and case study approach.

The study is limited to the extent that it is concerned only

with the administrative context in which each executive

 

5A. C. Germann, Police Executive Development
(Springfield: Charles C Thomas, Publisher, 1962), pp. 4—8.

functions. Organizational and goal differences are deleted.
The author compares executives from an administrative frame

of reference only.
II. IMPORTANCE OF THE STUDY

Most police agencies are of a size which require the
department head (chief of police) to establish a chain of
command and delegate responsibilities to other members of
the organization who, in turn, assist him in an adminis—
trative capacity. Often, important duties are assigned to
individuals in this manner. Thus, it becomes important to
identify these duties along with the skills needed to perform
them so that, in the light of their content, individuals can
be promoted who are best able to carry on the responsi-
bilities entailed.

The International City Managers' Association, in its
text Municipal Police Administration, states:

It is in this area of administration that the American
police find their greatest need. The police field has
untold numbers of expert policemen-~men who can patrol,
investigate, and enforce with the greatest degree of
understanding and proficiency, but there is a lack of
men who can satisfactorily control and direct these
policemen toward the organizational objectives.6

Day sums the situation up equally well and points to

the importance of this subject area in the following quo—

tation: "The police administrator deficient in administrative

 

6The Institute for Training in Municipal Adminis—
tration, 2p. cit., p. 76.

skills, though an excellent policeman, more often than not'
fails in his cardinal role as a leader . . 27
Research within this frame of reference is of value

in illuminating problems encountered in developing future

police executives.
III. DEFINITION OF TERM EXECUTIVE

Executive. This term, as used throughout the study,

 

refers to "people who are responsible for the performance of
a total organization or for important segments or activities
of it."8 The words administrator and top administrator are
used interchangeably with the term executive and carry the

same connotation throughout the study.9

IV. ORGANIZATION OF THE REMAINDER OF THE THESIS

Chapter II consists of a functional model defining
an executive. It was chosen for its versatility and is de-
signed to serve as a guide for comparing police and non-
police executives on an administrative basis.

Chapter III contains a review and analysis of the

literature, and it serves to test the model.

 

7Frank D. Day, "Police Administrative Training," The
Journal 2; Criminal Law, Criminology, and Police Science,
47:254 (July-August, 1956).

8Carroll L. Shartle, Executive Performance and
Leadership (Englewood Cliffs: Prentice-Hall, Inc., 1961),
p. 3.

9See Chapter II for a complete functional definition.

10

Chapter IV contains case studies conducted for
purposes of comparing police and business executives, and
presents empirical data discovered during the course of the
study. It also serves to test the model and the hypothesis
investigated.

Chapter V serves to summarize the information dis-
covered in conducting the research, and offers concluding
statements with regard to: (l) the applicability of the
hypothesis to the model, (2) data discovered in the litera-

ture and case studies, and (3) the need for further study.

CHAPTER II
A FUNCTIONAL MODEL OF AN EXECUTIVE

In order to assure accuracy in the comparison of
like positions within unrelated organizations, a functional
basis must be utilized. This is necessary because position
titles often bear no direct relation to tasks and responsi-
bilities performed by personnel in these classifications.

Sweeney, Davy, and Short in their text, Education

for dministrative Careers in Government Service, provide,

as they indicate, "criteria for identifying administrative
policy making positions." They characterize executives by
function as follows:

1. He bears primary responsibility in the planning
of the programs and activities of his agency or
jurisdiction;

2. He has an effective voice in the develOpment of
the budget of his agency or jurisdiction;

3. He exercises appointing authority or advises on
appointments to activities under his direction;

4. He is responsible for administrative policies and
systems that are essential to the accomplishment
of the major purpose of the parent agency or
jurisdiction;

5. He is responsible for the direction and general
supervision of a significant amount of the man-
power resource involved in the programs of the
parent agency or jurisdiction. Some of his sub-
ordinates perform important discretionary duties,
and others perform routine duties;

12

6. He is recognized by the executive officer, and
the legislative body, and in small and medium
sized municipalities by the general public, as
responsible for a major activity, whether it be
staff, managerial, or line, and is expected to
provide administrative leadership for this
activity;

7. The adequacy of performance of his subordinates
is as much affected by his concern for adminis-
trative matters (budget, recruitment, selection
and training of personnel, organization and
procedures, etc.) as by his concern for the
substantive and technical problems of the
activity for which he is responsible.

At this point, the author would like to call the
reader's attention to the versatility and adaptability of
the above model. Note its ability to universally apply to

any organization of any consequence.

 

1Stephen B. Sweeney, Thomas J. Davy, and Lloyd M.
Short, Education for Administrative Careers in Government
Service (Philadelphia: University of Pennsylvania Press,
1958). pp. 13-14.

CHAPTER III

REVIEW AND ANALYSIS OF THE LITERATURE

A. The Functions of the Police Executive

This portion of this chapter is devoted to reviewing
and analyzing the available police literature pertaining to
the functions of the police executive. There is a limited
amount of literature making use of a functional approach in
describing the police executive's position. Little research
has been done in this realm, and what writings are available
appear to be traditional and non-descriptive (from a job
description point of view) in nature.

The Institute for Training in Municipal Adminis-
tration, V. A. Leonard, O. W. Wilson, G. D. Gourley, and
John P. Kenney have written on the subject. The remainder

of this section will be devoted to a review of their works.

The functions. In their text, Municipal Police Ad-

ministration, the International City Managers' Association

2'.
offers a relatively simplistic definition of police adminis—

tration. They View it as "the job of the chief of police or
any other officer charged with the operation of a department

or an immediate segment within the department."1

 

1The Institute for Training in Municipal Adminis-
tration, 9p. cit., p. 4.

l4

Functionally, his job is seen as consisting of four integral

parts:

However,

Planning
Organization
Direction

External Relations2

the error of such a simple overview was soon realized

and a few chapters later in the same text a more complete

list of the "major administrative functions" appears.

expanded list reads as follows:

the same approach in defining police management.
items termed equipment, training,

the above list,

Planning
Organization
Staffing

Training

Budgeting
Equipment
Coordination
Public Information
Reporting
Directing

Gourley,

 

 

 

quoting Henry Fayol,

The

utilizes essentially

Delete the

and public information from

and the two approaches become relatively

15

identical. For purposes of clarification the list appears
below:

1. Planning

2. Organizing

3. Staffing

4. Directing

5. Coordinating

6. Reporting

7. Budgeting4

The remainder of this section will be devoted to

explaining the chief police executive's role in relation to

the previously mentioned principles of management.

Planning. Most authors in the police field seem to
agree that planning, particularly from an administrative
point of view, is the responsibility of the chief of police.
Ultimate accountability for the effective or ineffective
functioning of the organization remains his also. Reduced
to basic terms, "the chief of police is responsible for ad—
ministering the police department."5 The mayor, city
council or city manager (administrator) delegates the per-

formance of the police function within the framework of the

 

4G. Douglas Gourley, "What is Police Management,"
.221122. 3:34 (May-June, 1959).

5John P. Kenney, Police Management Planning (Spring-
field: Charles C Thomas, Publisher, 1959), p. 11.

16

government to him because, "he is the expert in police

administration."6

Accordingly, one of the first concerns of a police
chief consists of planning the work to be accomplished by
his department. The International City Managers' Associ-

ation states:

. . . Planning, in one form or another, is the very
essence of administration, and the man without fore-
sight is out of place at the head of any adminis-
trative unit.

Wilson concurs and provides support in writing:

Once the administrator has made his preliminary study
of policies, functions, duties, and practices and has
made some determination of the need for speciali-

zation, he must plan his organization structure. . . .8

He places responsibility for planning directly upon the

chief.

Police objectives are attained by planning, directing,
and controlling; the ultimate responsibility for the
successful performance of these functions rests with
the chief.

Gourley also agrees and writes: "Just as in other phases of

police work, the chief retains ultimate responsibility for

. u10
planning. . . .

 

61bid.

7The Institute for Training in Municipal Adminis-
tration, 9p. cit., pp. 4-5.

80. W. Wilson, Police Administration (New York:
Second Edition, McGraw-Hill Book Company, 1963), p. 46.

91bid., p. 109.

10G. Douglas Gourley, 9p. cit., p. 35.

 

17

Kenney offers by far the most complete treatment of
the planning responsibility of the chief of police. He re-
fers to administrative planning as being directly chargeable

to the office of chief of police. Administrative planning

is defined as:

. . . A cumulative and continuous process. Very
broadly it includes establishing goals and purposes,
designing operating policy to achieve them, and
introducing control measures Whifh insure that
policy is being followed. . .

Professor Kenney further believes that city and
county administrative officials (city managers, city council
members, county supervisors, etc.) share in the planning
process with the chief of police. Their participation
usually intervenes at the policy making level and encompasses
a general outlook. Detailed Operational and intradepart-
mental plans are left to the chief police administrator and
his staff. However, the chief police official assists the
governmental officials in their role. The precise relation-

ship is as follows:

The bulk of administrative planning for the police
department is the responsibility of the chief of
police. He is the 'expert' in police management
and, within the framework of guidelines provided
him, he must accomplish the job. In order to do
this he must develOp departmental plans Which pre-

scribe internal policy, organization, operations,
and programs.

 

11John P. Kenney, 9p. cit., p. 12.

12Ibid., p. 13.

 

18

There is no doubt that the planning function is im-
portant to the chief of police. Success in his organization
enhances his prestige, and failure detracts from it. It is
up to the chief to assess his department's strengths and
weaknesses. Only he can assume responsibility for deciding
between a multitude of organizational, administrative, and
operational alternatives. Planning can provide a good deal
of help to the chief executive in choosing the best alterna-

tives available.l3

Organization. The chief police executive is located
at the top of the organizational hierarchy. From this
vantage point, he looks down upon the remainder of the
organization, and he is responsible for structuring it in
order to facilitate the accomplishment of primary police ob-
jectives to the greatest degree possible. It is relatively
impossible for the police chief executive to perform all
duties required of his department himself. A small police
department containing a single individual would, of course,
be an exception; but, in any department of any consequence,
organizational structuring is necessary. Then, it becomes
"imperative that the police chief executive delegate some of

his powers, responsibilities, and duties to others. . . ."14

 

l3View expressed by R. E. McDonell, Industry Operations
Analyst for Law Enforcement, International Business Machines
Corporation, at the Police Planning and Research Institute,
Oakland, California, May, 1964.

14V. A. Leonard, Police Organization and Management
(Brooklyn: The Foundation Press, Inc., 1964), p. 61.

19

The manner in which this is accomplished dictates
the effectiveness and efficiency of the department to a
large extent. Kenney points out that, "Organization is the
key to successful police operation. . . ."15
Leonard dwells at length upon the organization of
the executive. He emphasizes the process of delegation a1-
1owing the chief police executive to confine his activity to
general managerial, administrative, and control duties.
Thus, the executive is forced to systematically structure a
wide array of departmental elements:
Such arrangement has for its main purpose the
extension in reach of the executive in Order to
facilitate the accom lishment of the tasks as—
signed to him. . . . 6
Wilson provides sustenance to the above concept in
his text:
The purpose of organization is to simplify the
direction, coordination, and control of members of
the force so that the objectives of the department
may be gained easily, effectively, and
satisfactorily. . . l7
Functionally, organizing consists of many facets.
Traditionally, the chief police executive is concerned with

organizational structuring through:

1. Dividing work according to purposeIprocess,
clientele, time, and area.

 

15

 

John P. Kenney, 2p. cit., p. 37.
.gp. it.

16

V. A. Leonard, c , p. 61.

17

Us)
0

O. W. Wilson, 2p. cit., p. 6

2O

2. Establishing lines of responsibility (a chain
of command).

3. Delineating span of control.
4. Maintaining unity of command.

5. Granting authority commensurate with responsibility.

6. Providing staff and/or functional supervision.18

Kenney holds that the duties of the top police execu—

tive entail more than the mere creation of a departmental

structure. He states:

. . . There are many aspects of police organization.
It is not simply the creation of the departmental
structure: it involves considering what is to be
done, who is to do it, and how all aspects Of the
work are to be related to each other. Fundamentally,
organization consists of a set of relationships of
things to things, jobs to jobs, pe0ple to people,
groups to groups, and processes to processes.
Organization is a structure, a network of such re-
lationships. . . . Since peOple are involved,
organization is dynamic and is ever changing.

Thus, Kenney visualizes the role of the police executive as

making changes by decision within the sc0pe of the definition

offered above.

The International City Managers' Association views a

good administrator (organizer) as:

. . . Able to organize men and materials to meet
current needs and to establish administrative

machinery that will produce satisfactory results
with speed, accggacy, and a minimum of friction

and waste . . .

 

18G. Douglas Gourley, 9p. cit., pp. 35-36.

19John P. Kenney, 9p. cit., pp. 37-38.

20The Institute for Training in Municipal Adminis—
tration, 9p. cit., p. 5.

21

Little is mentioned as to the methodology involved in

achieving such a goal.

Directing. This phase of the administrative process
involves implementing decisions previously made. It also in—
cludes the varied methods utilized to effectuate the de-
cisions: included are orders, instructions, memoranda,

bulletins, and manuals.21 "It is the final step in adminis-

tration--that is, telling and showing what is to be done."22

The International City Managers' Association divides
this administrative function into three integral components:
(1) command (described in the preceding paragraph), (2) co-
ordination, and (3) control.

Coordination refers to appraising the organization
and its personnel in order to find out what adaptations or
changes may be requisite to harmonizing organizational
elements.23

Coordination affects two or more (organizational
elements) who must work in unison and who are
usually on an equal level of authority and some-
times under a different immediate command . . .24

Administratively, coordination:

Demands skill in devising procedures to induce co-
operation and to eliminate friction. In the final

 

21G. Douglas Gourley, "What is Police Management,"
Police, 3:60 (July-August, 1959).

22The Institute for Training in Municipal Adminis-
tration, pp, cit., p. 118.

23Ibid., p. 6.

24O. W. Wilson, 2p. cit., pp. 71-72.

22
analysis, it rests upon the diplomacy and tact of
the police administrator.

Control, "is a composite of the techniques used by
the chief of police and his staff officers to determine
whether departmental objectives are being efficiently
achieved in accordance with stated policy."26 In effect,
control methods are, "tools by which the police administrator
is assured that his direction of the department is ef-
fective. . ."27 They are used as a check to see if pre-
scribed policy is being adhered to in the operation of the
department by subordinate personnel. Gourley writes:

"Control, as well as command, is necessary to efficiently

direct the activities of a police agency."28

Staffing. This concept refers to the responsibility
of the chief police executive for seeing that only personnel
of the highest caliber are employed within the department.
The agency head is accountable for maintaining a good
personnel program capable of attracting men of ability. The
existent personnel policies must also be able to hold these

people on the force as content employees.29

 

25The Institute for Training in Municipal Adminis-
tration, 9p. cit., p. 6.

26John P. Kenney, 9p. cit., p. 123.

27The Institute for Training in Municipal Adminis-
tration, 9p. cit., p. 6.

28G. Douglas Gourley, 2p. cit., pp. 60—61.

29The Institute for Training in Municipal Adminis-
tration, pp, cit., pp. 86-87.

23

Coordinating. This tOpic is discussed under the
heading of directing, as it is viewed by the literature re-

viewed here as an integral part of the direction process.3O

Reporting. Information concerning departmental
Operations and related matters should be available to both
superiors and subordinates of the chief police executive.
Gourley refers to the obligation of the executive to do this,
and also to his responsibility for creating communication
channels up, down, and across the organizational structure
at all levels in the hierarchy.31

The International City Managers' Association defines
administrative reporting simply as, "The communication of
information necessary for the efficient management of the

organization."32

In their View, the responsibility for
seeing that information and understanding ascends or descends
the chain of command rests squarely with the chief executive
of the police agency. Also, communication lines with other
agencies, both police and non-police, must be established.
This too is the responsibility of the police executive.33

Kenney adds support to the above beliefs, "They

(records) are also important for the control of the total

 

30See pages 21-22 for discussion.

31G. Douglas Gourley, 9p. cit., p. 61.

32The Institute for Training in Municipal Adminis-
tration, 2p. cit., p. 116.

33Ibid., pp. 116-118.

 

24

operation of the department by the chief of police."34 In

essence, records are the means used to gain the ends out-

lined above in this section.

Budgetipg. Of late, the budget has come to repre-

sent a planning device utilizing dollars in relation to

35

departmental programs as a means of comparison. The

process can be summed up as follows:

. . . The budget is an instrument which records work
programs in terms of apprOpriations needed to place
them into effect. It is prepared through a process
of planning: the services to be rendered and the
projects to be undertaken are outlined with esti-
mates of expenditures needed to carry out the work
program. Decisions must be made therefore as to
what the department proposes to do in the ensuing
year. Estimates must be made . . and translated
into their anticipated money cost.36

Kenney also views the budget as a planning device.
He emphasizes the fact that it allows the chief police ad-
ministrator to express, "contingencies, priorities, time
schedules, and completion dates in a practical manner . . ."37
Equally important, "the budget gives the chief of police an

Opportunity, either directly or through the municipal ad-

ministrator, to explain his program and his policies to the

 

 

city council."38
34 .
John P. Kenney, pp. c1t., p. 102.
35G. Douglas Gourley, pp. cit., p. 62.
36

The Institute for Training in Municipal Adminis-
tration, pp, cit., pp. 88-89.

37John P. Kenney, pp. cit., p. 92.

 

381bid.

25

The budget provides other services as well. It is
both a control device and a management tool if used correctly
by the chief of police. As a control device, it assures
that funds are expended for the purpose for which they were
apprOpriated; as a management tool, the budget assists in

seeing that work programs are completed according to plan.39

Other roles. The top police executive possesses
other roles in addition to those previously cited. All are
too numerous to mention within the limits of this thesis.
Other roles mentioned in the literature include public infor—
mation, training, external relations, and equipment only to
mention some. For further detail, it is recommended that
the reader refer to the basic police texts cited in the foot-

notes of this section in this chapter.

B. The Functions of the Business Executive

Introduction. This section discusses the function of
the executive who works in private enterprise. Literature
pertaining to the activities performed by corporate execu-
tives is reviewed. The intent is to develop, more or less,

a consensus of literary opinion as to just what responsi-
bilities the executive engaged in private enterprise possesses

and the functions he is expected to perform.

 

39The Institute for Training in Municipal Adminis—

tration, pp. cit., p. 89.

26

The list of authors contained herein is by no means
complete. Writers, whose works appear here, were selected
on the basis of being representative of present feeling with
regard to the topic under discussion. The author does not
claim to have exhausted the literature on the subject. In—
stead, writers were chosen on a selective basis to show con-
sensus, and to generally indicate what the authors in the
field believe to be the role of the business and/or corporate
executive.

Upon reviewing the literature under discussion, the
author became aware of a basic difficulty. The views of the
authors cannot be summarily classified according to topical
headings. Therefore, the material presented is in no par-

ticular order.

Review p; the non-police literature. Harold
Stieglitz in his article, "Organization of the Chief Execu-
tives Job," states that the chief executive cannot have his
work defined for him. Generally, only broad objectives are
defined by the board of directors, and the determination of
specific responsibilities to be kept by himself and those to
be delegated are reserved to the prerogative of the

40

executive.

Here it would seem, is one obvious piece of work that
is uniquely that of the chief executive——defining the

 

4OHarold Stieglitz, "Organization of the Chief Execu-
tives Job," Management Record, 23:2 (February, 1961).

27

work he will do and the work that can be delegated to
others.41

Stieglitz does, however, refer to what he terms a
"hard core" of responsibilities that belong to the executive.

They consist of:

External relations.

Definition of objectives and long range planning.
Over-all policy formulation.

Surveillance and control.

Development of a successor.42

U'lanNI-J
O

Braybrooke has developed an interesting hypothesis

regarding executive functions. He writes:

The trouble . . . is that as one investigates, one

seems to discover that an executive can be said to

do something clearly identifiable only when he is

doing something that in a larger or more perfect

organization would be done by a subordinate, or, in

other words it would seem that the more specialized

the role of leadership becomes, the more difficult

it is to say what a leader does.
He holds that men in positions of power do spend time
planning, evaluating alternatives, listening to advice, and
consulting. These activities, according to him, are subordi—
nate to decision making and, as such, are activities carried

to completion by subordinates. Thus, Braybrooke holds them

to be inferior to the executive function.

 

41Ibid.

421bido: pp. 8-9.

43David Braybrooke, "The Mystery of Executive Success
Re-examined," Administrative Science Quarterly, 8:533-534
(March, 1964).

28

Braybrooke regards decision making, "as the character-

istic minute activity of the man in power."44 In small

organizations, the executive is called upon to exercise his
decision making power often. In larger organizations it is
exercised to a lesser degree due to "subdivision of the
executive function."45 In the words of Braybrooke:

The executive may be conceived to occupy a focal
point of reSponsibility. Above him or beyond him
there are his principals who hold him responsible
for success . . . Beneath the executive lies the
organization that looks to him as the fount of
authorizations, and that, in the event of criticism
from the principals, will shift the responsibility
for policies upward to him, either by claiming that
only what he had authoriZed had been done, or by
forcing him to decide whether a case of exceeded
authority should be overlooked or punished.

. . . The main excitment of executives' careers
must consist in this: that they are forced to risk
their jobs and reputations on decisions where good
results are not guaranteed . . .

What the executive has to do, to speak naively, is
simply to succeed: succeed in pacifying interest
groups, succeed in keeping his firm at the head of
the industry . . . He does not necessarily have to
win all the time; his principals may put up with
failures, even with a sequence of failures, so long
as they believe that no one else could have done any
better . . .46

Appley defines the management function as "activity

which makes things happen."47 He further holds there exist

 

44;pip., p. 537.

45I21§o

46M” p. 542.

47Lawrence A. Appley, "Management and the American
Future," in Max D. Richards and William A. Nielander,

Readings ip Management (Chicago: South-Western Publishing
Company, 1958), p. 8.

29

certain fundamental management processes that have to be ad-
hered to in order to make things occur. These processes are
planning, organizing, and executing. Planning refers to
setting goals, determining future conditions, and the future
methods of action to be taken. Organizing connotes the
assembling and arrangement of resources in order to realize
planned objectives. Executing is implementing plans in
order to attain goals.48
Dinsmore refers to the role of the administrator as

being one of strategy development. He writes that the ad—
ministrator is:

One who assigns general objectives but gives little

or no consideration to the details of their ac-

complishment. The administrator establishes compre-

hensive objectives for the organization or one of

its major subdivisions . . . He is the strategist.49
What Dinsmore terms strategist appears to be quite similar
to the planning role of the management function described by
Appley.

Chester I.Barnard has authored a rather extensive

volume concerned solely with the functions of the executive.
Barnard visualizes three essential duties as being executive

in nature. They are:

l. The first executive function is to develOp and
maintain a system of communication.

 

481bid.

49William F. Dinsmore, "Supervision, Management, and

Administration," Personnel, 39:77-80 (July-August, 1962).

 

30

2. The second function of the executive organi—
zation is to promote the securing of the
personal services that constitute the material
of organizations.

3. The third executive function is to formulate
and define the purpoges, objectives, and ends
of the organization. 0

Barnard further holds that "executive work is not

that of the organization, but the specialized work of main—

taining the organization in operation."51

Barnard's first executive role involves the develop—
ment and maintainance of a communication scheme. In the
author's words:

The process by which the latter is accomplished in-
clude chiefly the selection of men and the offering
of incentives: techniques of control permitting ef-
fectiveness in promoting, demoting, and dismissing
men; and finally the securing of an informal organi-
zation in which the essential property is compati-
bility of personnel . . . 52

The second executive duty proposed by Barnard is
divided into two primary sections: (1) bringing employees
into union with the organization, and (2) the obtaining of
appropriate services upon bringing persons into the state of
the relationship mentioned above.53

The methods . . . as executive functions may be

distinguished as the maintenance of morale, the
maintenance of the scheme of inducements, the

 

50Chester I. Barnard, The Functions p; the Executive
(Cambridge: Harvard University Press, 1960), pp. 226-231.

SlIbid., p. 215.

52Ibid., pp. 226—227.

53Ibid.

31

maintenance of schemes of deterrents, supervision
and control, inspection, education, and training.54

C. I. Barnard's third executive responsibility re-
fers directly to organizational goals. It is their job to
define andredefine, as need arises, the ends sought by the
enterprise. On this issue, Barnard stresses the old proverb
that "actions speak louder than words":

. . . Purpose is defined more nearly by the aggre—
gate of action taken than by any formulation in
words . . . It is more apparent here than with
Other executive functions that it is an entire
executive organization that formulates, redefines,
breaks into details, and decides on innumerable
simultaneous and progressive actions that are the
stream of synthesis consituting purpose or

action . . .55

Chester Barnard does not visualize these three
functions as separate entites. "It is their combination in
a working system that makes an organization."56 In essence,
they are functions of an organic whole.

Marshall E. Dimock believes that the executive
should have knowledge of organization plans and strategy.
After this, the work of the executive is essentially:

A matter of taking routine and periodic inventory
of the current state of accomplishment in an un-
folding program, in order that the head of the

enterprise may secure a bird's-eye integrate? View
of the progress of the work as a whole . . . 7

 

54Ibid., pp. 230-231.

55Ibid.

56Ibid., p. 233.

57Marshall B. Dimock, The Executive ip Action (New
York: Harper and Brothers, Publishers, 1945), p. 84.

 

 

32

The text, The Executive pp Work, by Melvin COpeland

 

describes the executive as a decision maker:

Someone must decide what is to be done, when, and by
whom. . . . For each decision action must be taken,

and the primary responsibility for making sure that

action is taken rests on whoever makes the

decision . . .58

COpeland summarizes the executive role as follows:

It is the task of the chief executive to make the
key decisions and to make sure that the supple—‘
mentary decisions are made in due time, in prOper
sequence, and in harmony with the key decisions.
His real authority is measured by the degree to
which his key decisions are implemented by the
supplementary decisions and actions of the rest of
the organization.

Pamp concurs with COpeland in holding the central activity

of the executive to be his process of decision.6

Pickus writes on the necessity of a manager to

possess "administrative skills." He writes:

who:

A successful manager is marked by his ability to
plan and organize the work of others rather than

by the amount of work he does himself. . . . Ability
to inspire and teach, ability to make decisions, and
a creative imagination are important marks of a
successful manager.

Katz suggests that an administrator is an individual

 

58Melvin T. COpeland, The Executive_gp Work (Cambridge:

Harvard University Press, 1951), p. 15.

591bid., p. 17.

60Frederick E. Pamp, "Liberal Arts as Training for

Business," Harvard Business Review, 33:45 (May-June, 1955).

61Morris I. Pickus, "What a Manager Must Be,"

Personnel Journal, 42:580 (December, 1963)°

 

33

l. Directs the activities of other persons, and

2. Undertakes the responsibility for achieving
certain objectives through these efforts.6

The success or failure of an administrator depends upon how
well he has mastered technical, human, and conceptual
skills.63

Murdick proposes in his writing that the primary
activities of the "top administrator“ are planning, organ—
izing, directing, and controlling the chief activities of an
organization. Also, "the manager directs the work of . . .
employees and has authority to hire and fire."64 Murdick
does not define what he means by the terms used to describe
the primary activities.

Glen Cleeton and Charles Mason qualify their defi-
nition of the executive's job by stipulating that the degree
to which an executive engages in policy decisions, dele-

gation of responsibilities, and tasks supervisory in nature

depends upon the degree of specialization of the position

 

62Robert L. Katz, "Skills of an Effective Adminis-
trator," in Max D. Richards and William A. Nielander, Readings
,ip Management, pp. cit., p. 759.

63For a detailed explanation of technical, human, and
conceptual skills, the reader is advised to review the above
article. Since the items mentioned are skills and not
functions, the author desires only to bring them to the
reader's attention.

64Robert G. Murdick, "The Meaning of Management as a
Profession," Advanced Management, 25:15 (April, 1960).

 

34

held in the organization by that particular executive.65

However, they present the following "abstract analysis of
executive functions." In their View the duties of the execu-
tive are as follows:
1. Determination of problems relating to raw
materials, production, marketing, finance, risk,
personnel, and social institutions which require
solution.

2. Planning the solution of these problems.

3. Organization of personnel and setting up physi-
cal equipment to carry plans into Operation.

4. Delegation of reSponsibilities for execution of
plans.

5. Supervise both human and physical agencies oper-
ating to carry out plans.

6. Test, check, and modify organization to compen-
sate for inevitable changes and unforeseen
consequences.

7. Coordiante organization into a balanced unit.

8. Maintain control of organization at all times.
No scheme for organization is self-sustaining.
The executive must know and apply techniques of
control.66
The additional function, though not appearing in the

above list, of coordinator is stressed in terms of importance

by Cleeton and Mason. They definitely believe coordination

to be an executive responsibility. Their view is that, in a

 

65Glen U. Cleeton and Charles W. Mason, Executive
Ability Its Discovery and Development (Yellow Springs, Ohio:
The Antioch Press, Publishers, 1934), pp. 20—21.

66Ibid., pp. 27-28.

 

35

sense, the administrator is a specialist in coordination.
In their words:

He must take the facts supplied by his research
experts, his production experts, and his market
experts, and coordinate these facts into the best
interest of his company as a whole. He must evalu—
ate facts and weigh them, one against the other, so
as to formulate plans of action.

Hay and Purves outline the following items as being
characteristic of a "high-level" position:

1. Has a definite objective in a specified area of
activities, and this can be stated and delimited
quite concretely.

2. Requires the establishment of an organization,
with functions and delegations of responsibility

and authority, and these can be stated clearly.

3. Requires the staffing, develOpment, and appraisal
of the organization, which can be spelled out.

4. Involves making policy, which can be described as
to content and extent.

5. Requires planning, which can be identified as to
its coverage and its over—all, long—range, short-
range, and specific aSpects.

6. Involves execution by self or through others,
which can be described in terms of administration,
specialization, direction, and motivation.

7. Involves review and aggraisal of results against
objectives and plans.

The authors View the above items as the areas in which an
executive functions. He devotes his attention to these

seven activities.

 

67Ibid., p. 142.

68Edward N. Hay and Dale Purves, "The Profile Method
of High Level Job Evaluation,” Personnel, 28:164 (September,
1951).

 

36

As recent as 1962, a group of top administrators
gathered at the Waldorf-Astoria in New York City in order to
participate in a round-table discussion concerning the basic
elements of their occupation. Decision making was the
responsibility outlined as the most exacting. The following
duties also received considerable attention during the
discussions:

1. Determining the form of his organization.
2. Staffing the organization.

3. Controlling, appraising, and accounting for
results.

4. Creating an atmosphere that is conducive to good
relations--an atmosphere in which people can feel
free and uninhibited.69
Wrightnour, in his writing, describes six major

responsibilities of top managers. He believes that every

administrator possesses responsibilities in the topics

mentioned below:

1. The organizing, planning, direction, coordination,
and control of the personnel under his jurisdiction.

2. The selection, training, and develOpment of an ef—
fective team of competent people who thoroughly
understand and are able to accept and discharge,
the obligations of their positions.

3. Guiding and coordinating performance, enlisting
the willing response and full cooperation of all
members of the team.

 

69

________, "In The Record," Management Record, 24:1
(May, 1962).

 

37

4. Applying apprOpriate measures of accountability,
appraising results, and taking steps to correct
weaknesses.

5. Energizing his personnel to maximum accomplishment.

6. Maintaining employee, customer, and public re-
lations on a high plane.

G. W. Briggs draws an analogy between a manager and
a tribal god. Here he is refering to their being set apart
from the remainder of the organization and its everyday cares
and concerns. "It is characteristic of functional management
that the closer you get to the shOp floor the more you are
concerned with detail and technicalities."71 Thus, the
higher one goes in the job hierarchy, the closer he comes to
resembling a tribal god in this sense.

"A good general manager need not be highly skilled
technically, but he must be a first-class organizer if he is
to be successful."72 Briggs sees the techniques of manage-
ment as:

l. Fact-finding and interpretation.
2. Forecasting and planning.

3. Organizing.

4. Directing.

5. Co—ordinating.

 

70William F. Wrightnour, "Management Development: A
Practical Application," Personnel, 28:285—286 (January, 1952).

71G. W. Briggs, Studies ip Management Techniques

(London: Gee and Company Limited, 1953), pp. 12-13.
72

 

Ibid.

38

H

6. Controlling.’3
Light, another English author, writing a few years
after Briggs takes somewhat of a different approach. Light
views the administrator as one who plans, organizes, and
directs the work of others. "They (executives) use their
own capabilities and those of their subordinates to get
things done."74 However, he also writes of the executive's
authority to plan, organize, and control, as does Briggs;
but, in addition, he makes note of the acceptance of these
responsibilities assigned to the executive's position of
authority. Light defines these duties:
1. In planning, an executive decides what shall be
done, determines methods and procedures, and
fixes day to day schedules. He is concerned
with the future and forecasting: he tries to
anticipate possible events and their effect.
2. In organizing, resources and manpower are com-
bined for the economical and effective attain-
ment of given objectives. As far as the execu-
tive is concerned, the human factor is the most
important in this part of his work, for he is
required to motivate, direct, and co-ordinate
the work of others.
3. In controlling, an executive is required to
see that the results of his organizing conform
as possible to the plans. It involves checking
activities and providing methods for correcting
faults.75

Mr. Light recognizes the fact that executive posi-

tions are often specialized carrying differing assignments,

 

73Ibid., p. 5.

74H. R. Light, The Business Executive (London: Sir

Isaac Pitman and Sons Limited, 1961), p. 2.

7SIbid.

39

e.g., sales, planning, personnel, etc. He believes that no
matter what the activity, the executives involved will en-
gage to varying degrees in the related functions mentioned
above. "While all executives are engaged in each of these
processes, it is clear that the proportion of time they
spend on each will vary from time to time and from one execu-
tive to another."76
Haynes and Massie concur with Light and also speak

of the executive's job requiring the involvement of getting
things done through the medium of people.

. . . It is clear that the human or personnel side

of management is extremely important; many other-

wise sound ideas have failed because of the in—

ability to win the co-operation or, at least, the

acceptance of those who must put the ideas into

practice. ‘

In their View, the executive is functionally in—

volved in:

1. Decision—making

2. Organizing.

3. Planning.

4. Directing.

5. Controlling.

6. Staffing.

7. Co-ordinating.

 

76Ibid., p. 3.

77Warren W. Haynes and Joseph L. Massie, Management
Analysis, Concepts, and Cases (Englewood Cliffs: Prentice-
Hall, Inc., 1961), p. 12.

4O

8. Communicating.
9. Motivating.

10. Evaluating.78

Louis A. Allen regards management as involving the

exercise of a number of distinct and visible duties. They
are planning, organizing, co-ordinating, motivating, and
controlling in reference to the work of other pe0ple. Allen
writes:

The professional manager devotes a share of his

personal time to appraising the work of his subordi-

nate officers, to counseling and coaching them in

their efforts to improve performance. He establishes

a control system that will report the data he re-

quires to evaluate the progress of the company and

each of its component members and enable him to take

corrective action as soon as discrepancies in per-

formance are identified.79

In a subsequent publication, Allen's list of execu—

tive duties changed. He stated that the functions included
planning, organizing, directing, coordinating, and con-
trolling excluding the motivation function that appeared in
his previous list. In its place appeared directing. Allen
critiqued the above items as being vague. He further de-
fined a manager as:

. . . Someone who is so placed organizationally that

only he has perspective, objectivity, and balance

with respect to the varying and sometimes conflicting

needs of his subordiantes. Hence, his work consists
of doing those things that his subordinates do not

 

78Ibid.

79Louis A. Allen, "Wantede-A Science of Management
Organization,” Advanced Managpment, 24:21-22 (January, 1959).

41
have the perspective or objectivity to do for
themselves.

He sees the manager as a "catalyst" reconciling needs and
interests of both subordinates and superiors alike. "And he
fulfills his role as a catalyst by performing the work that
only he can do--the work that neither his boss nor his

subordinates are organizationally placed to do."81

Again,
through redefinition, Allen describes this unique managerial
work as being divided into four distinct functions:

1. Leading.

2. Organizing.

3. Planning.

4. Controlling.82
"To fulfill his organizational role, every manager at every
level must carry out these activities. When he is not doing
these things, he is not managing."83

Louis Allen stresses the leadership aspect and lists

several subfunctions: leading, the work a manager does to
cause others to take action, includes:

1. Initiating--the work a manager does to insure

that everything that has to be done gets
underway . . .

 

80Louis A. Allen, "The Good Manager: Do we Know What
We're Looking For?," Personnel, 37:10 (January-February,
1960).

 

 

 

 

42

2. Decision-making—-the work a manager does in
arriving at conclusions based on the logical
analysis of alternatives . . .

3. Communicating--the work a manager does in
getting others to understand what he has in
mind, and, in turn, understanding his
subordinates.,

4. Motivating--the work a manager does to stimu-
late and spur peOple on . . .

5. Selecting people--the work a manager does in
choosing those who are not only qualified for
the job, but are also most likely to be Com-
patible with the other members of the team.
6. Developing people--the work a manager does aimed
at improving present performance and developing
latent skills 84
The definition of his concept of organizing is:
The work a manager does to develop a sound structure,
delegate responsibility and authority, and establish
working relationships that will facilitate the at-
tainment of his objectives.85
Planning refers to a manager's work regarding the
determination of future action, and management controls con-
sist of those techniques utilized to insure work is being
performed according to his instructions.86
House and McIntyre have attempted one of the few

empirical studies of the duties of the executive. Both

authors interviewed "seasoned" managers averaging nine years

 

 

 

of experience. "The purpose of the interview was to obtain
84Ibid., pp. 11-12.
851bid.. pp. 13-14.
86

 

43

from each member a statement of his management philosophy

87 Their in-

and the activities he performed as a manager."
tent was:

To get as many statements as possible from each

interviewee, bearing on what he does as a manager,

and what he believes are the proper objectives of

management . . . 8
The interviews were conducted at North American Aviation at
the Columbus Division. Their duration consisted of a minimum
of twenty-five minutes and ranged to a maximum of three hours.
A total of eleven interviews were conducted.89

For purposes of publication and formal presentation,

all responses were categorized within four major groupings:
planning, organizing, motivating, and controlling. (See
Figure I.)90 A total of one-hundred and ninety statements
were recorded which led to some purposeful findings.
Interestingly, forty per cent of the statements were cate-
gorized in the area of motivation. Also, responses dealing
with planning were not as specific as those involving the

three other categories. Statements centering around planning

were often vague and uncertain. Answers such as, "you have

 

87Robert J. House and John M. McIntyre, "Management
Theory in Practice," Advanced Management, 26:17 (October,
1961).

 

 

 

44

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45

to look ahead" and "oh yes, you have to know where you're
going" were frequently made.91

It was evident that planning is the least conscious-

ly performed of any of the functions, and in spite

of its fundamental importance, it is the function

most accomplished by intuition . . .92

The study also brought to light dual roles practiced
by managers in general: the roles of superior and subordi—
nate. Each is played separate from the other, and it is a
rare manager who plays both Optimally.93
Fox too, writes of the manager's job as being one of

getting things done through the directed efforts of other
people. He writes:

. . . In effect, he engages in the functions of

planning, organizing, and controlling the work of

others in addition to his own work. These are

the three organic functions of management. By

'organic' we mean that all three are invariably

basic to, and inherent in, managerial activity,

whenever and wherever it is performed.94
Dr. Fox defines planning as determining what has to be done,
how, where, when, and by whom. He views organizing as
"setting the stage" for performance "by determining what

functions, people, physical factors, and the interrelation-

ships between these will be required to carry out

 

 

 

 

94William M. Fox, The Management Process (Homewood,
Illinois: Richard D. Irwin, Inc., 1963), p. 3.

 

46

organizational objectives."95 Controlling concerns the

activities performed by the manager designed to insure
events conforming to plans.96
Fox mentions the existence of a basic controversy
among authorities regarding the classification of management
functions. There is general accord as to the three basic
functions, but little agreement exists covering subfunctions.
He classifies the primary activities as previously mentioned,
and his classification of primary and secondary management
duties appears below. The primary functions are listed
horizontally and the subfunctions appear vertically.
PLANNING ORGANIZING CONTROLLING
Staffing Delegating
Training Directing
Motivating
Coordinating
Evaluating
Correlating97
Newman again brings one's attention to the activity
performed by the manager in directing the efforts of other
individuals toward certain goals. He believes the way to
analyze administration is through what the administrator
does. In his text, Newman delineates six basic duties into

which the tasks of the executive are divided:

1. Planning—-that is, determining what shall be
done . . .

 

951bid.. p. 4.

96Ibid.

 

 

 

47

2. Organizing--that is, grouping the activities
necessary to carry out the plans into adminis-
trative units, and defining the relationships
among the executives and workers in such
units.

3. Assembling resources--that is, obtaining for
the use of the enterprise the executive
personnel, capital, facilities, and other
things needed to execute plans.

4. Directing--that is, issuing instructions . . .
5. Controlling--that is, seeing that operating re-
sults conform as nearly as possible to the
plans.
6. NOn—delegated activities--that is, the sales
manager may call on customers, or the pro-
duction manager may spend some time in the
design of a new product.
Newman emphasizes that "even the administrators of very
large enterprises are not able to delegate all actual per-
formance to subordinates."99 Included in the non-delegated
activities category are:
The external contacts that the chief executive of a
large enterprise must make personally; it is in—
cumbent upon him to meet important customers, deal
with union officials, appear before Congressional
Committees, or take part in certain civic
activities . . .100
Carroll L. Shartle summarizes the findings of the

Ohio State Leadership Studies of business and military

organizations in his text Executive Performance and-

 

98William H. Newman, Administrative Action: The
Techniquestp Organization and Management (New York:
Prentice-Hall, Inc., 1951), pp. 4—5.

99Ibid.

lOOIbid.

48

Leadership. Executives from both factions were studied
through interview and direct observation to determine what
activities they performed. "The purpose of the interviews
and observations was not to compile job descriptions, but to

discover the SCOpe of executive performance and determine

101

the kinds of activities that were performed." Through

the study a list of fourteen activities discharged by execu-
tives was arrived at:

1. Inspection of the Organization. Direct obser-
vation and personal inspection of installations,
buildings, equipment, facilities, operations,
services, or personnel for the purpose of
determining conditions and keeping informed.

2. Investigation and Research. Acts involving the
accumulation and preparation of information and
data (usually presented in the form of written
reports).,

3. Planning. Preparing for and making decisions
which will affect the aims of the organization
as to volume or quality of business or service
(including thinking, reflection and reading,
and consultations and conferences with persons
relative to short and long range plans).

4. Preparation of Procedures and Methods. Acts in-
volving the mapping of procedures and methods
for putting new plans into effect, as well as
devising new methods for the performance of
Operations under existing plans.

5. Co-ordination. Acts and decisions designed to
integrate and coordinate the activities of
units within the organization or of persons
within units to achieve maximal over-all ef-
ficiency, economy, and control of operations.

6. Evaluation. Acts involving the consideration
and evaluation of reports, policies, and
standards of the organization.

 

101Carroll L. Shartle,.pp, cit., p. 83.

49

7. Interpretation of Plans and Procedures. Acts
involving the interpretation and clarification
for assistants and other staff personnel of
directives, regulations, practices, and
procedures.

8. Supervision of Technical Operations. Acts in—
volving the direct supervision of personnel in
the performance of duties.

9. Personnel Activities. Acts involving the se-
lection, training, evaluation, motivation, or
disciplining of individuals, as well as acts
designed to affect the morale, motivation,
loyalty, or harmonious cooperation of personnel.

10. Public Relations. Acts designed to inform out-
side persons regarding the program and functions
of the organization, to obtain information re-
garding public sentiment, or to create a
favorable attitude toward the organization.

11. Professional Consultation. Giving professional
advice and specialized assistance on problems
of a specific or technical nature to persons
within or outside the organization (other than
technical supervision and guidance of own staff
personnel).

12. Negotiations. Purchasing, selling, negotiating
contracts or agreements, settling claims, etc.

13. Scheduling, Routing, and Dispatching. Initiating
action on determining the time, place, and se-
quence of operations.

14. Technical and Professional Operations. The per—
formance of duties specific to a specialized
profession. (e.g. practice of medicine, aufating
records, Operating mechanics on equipment). 2
Koontz and O'Donnell see the managerial job as the

creation of an environment within the organization facili—

tating the realization of its basic objectives.

In COOperative enterprises-—whether these be govern-
ment bureaus, universities, churches, hospitals, or

 

lozIbid., pp. 83-84.

50

business firms——the able manager crgates conditions
conducive to effective work . . .10

These authors emphasize that the managerial duties are
common to all organizations.

The duties are grouped around the common functions
of planning, organizing, staffing, direction, and control.
Koontz and O'Donnell qualify the above classification by
stating that it is not always feasible to arrange all
managerial functions into these categories, however, they
hold the arrangement to be a realistic and helpful tool.104
"In practice, managers find themselves performing all their
functions at once . . ."105

The authors make an astute distinction between
functions and techniques. They feel the distinction is use—
ful because of a tendency by a great many authors to inter-
mingle functions and techniques. ”Functions are the
characteristic duties of the manager, while techniques refer
to the way these functions are carried out."106

Thus, a manager may be engaged in the function of
direction, but he may use the technique of command
or persuasion. His function of controlling a sub-

ordinates activities may be exercised through the
technique of a budget 07

 

1Q3Harold Koontz and Cyril O'Donnell, Principles p;
Management: .53 Analysis p; Managerial Functions (New York:
Third Edition, McGraw-Hill Book Company, 1964), p. 38.

104Ibid., p. 39.

losIbid.

106Ibid.

107Ibid., p. 45.

51

Pfiffner and Presthus, writing from the vantage
point of the public administrator, regard the maintenance of
organizational balance as a vital administrative function.
They write:

The executive's function is to keep the organizations

sense of collective purpose alive, to weld the mem—

bers together in seeking it, and to adapt this

purpose to changes that may otherwise render it

anachronistic. Since he alone has the power and the

vantage point to do so, the top executive must be

held responsible when the organization falters.
Pfiffner and Presthus see the role of the top administrator
as comprising the following activities:

1. Leadership by compromise, not by command.

2. Public spokesman for the organization.

3. Coordination.

4. Decision-making.

. . 109

5. Communication.

The above authors observe that most writers in the
field of administration neglect the political implications
of administration. They attribute this, in part, to the be—
lief that politics and administration are separate entities.
Pfiffner and Presthus hold that administration demands

political skills, and that they are just as important as

skills in finance, personnel administration, and organization

 

108John M. Pfiffner and Robert V. Presthus, Public
Administration (New York: Fourth Edition, The Roland Press
Company, 1960), pp. 108-109.

logIbid., pp. 110-133.

 

52

analysis. They list the following as political activities
important to the administrator:

l. Maintaining relations with legislators.

2. Maintaining relations with interest groups.

3. Maintaifing relations with the unorganized
public. 0

It is their belief that the results of such activities can,

and often do, provide ”effective public relations."111

C. Analysis of the Literature

Introduction. The remainder of the chapter consists
of a summary of parts I and II along with statements per-
taining to observations made by the author in his search
through the literature. The intent herein is to provide the
reader with a summary of comparative findings discovered
through reviewing the writings of police and non-police
(business) oriented authors. Finally, comments are offered
regarding whether or not the literature is supportive or

contradictory of the key hypothesis under investigation.

Analysis p; the pplice literature. Generally,
police writers are in agreement as to what functions are
within the realm of responsibility of the police executive.
They recognize executive responsibility as existing in

several areas; viz., planning, organizing, directing,

 

llOIbid., p. 154.

lllIbid.

53

staffing, coordinating, reporting, budgeting, public infor-
mation, and external relations. These areas represent
activities in which the police administrator is active, or
in which in their view should be engaged. Authors within
this discipline seem to incorporate traditional views of
management in defining executive responsibility. Accounta-
bility for the proper exercise of duties within the area of
the functions mentioned acrue to the police executive by
virtue of his position as head of an organization of major
segment thereof.

One primary critique of the police writers in
general can be ventured. Their articles written on the sub—
ject matter under discussion are quite general in sc0pe and
present relatively broad concepts. Considerable detail
seems to be absent. They define wide areas of responsibility,
but often fail to adequately describe the police executive's
role from a functional standpoint.

The planning function serves as an excellent example
of the above critique. In the text Municipal Police Adminis-
tration, The Institute for Training in Municipal Adminis-
tration adequately defines the planning process, discusses
the concept of staff work, classified types of plans, and
offers broad guides pertaining to the functioning of a

planning unit.112 Little is said about:

 

112See Municipal Police Administrati0n7.2E° cit.,
pp. 79-86.

 

54
l. The type of planning to be performed by top
executives.

2. The type of planning to be performed by
middle management.

3. The type of planning to be performed by
supervisors.

Answers as to who performs certain types of planning are not
to be found in their discussion of the subject. Wilson also
fails to specify those types of plans which are executive,
managerial, or supervisory in responsibility.113
Kenny, in his book Police Management Plannipg, not
only defined the planning process pp; pp, but also attempted
to answer the basic question at hand: "Who plans"? His
presentation, although lacking in depth, discusses the
planning responsibilities of all levels within the police
organization. Of the authors reviewed, Kenny was the only
one to attempt such a delineation of the planning function.
Similar examples can be drawn from the literature in-
volving other executive activities. Writers define a certain
activity as being within the area of responsibility of a
police executive, but his exact role often is not adequately
covered. Little detailed police literature describing the
job of the executive or what duties he performs on an actual

basis within the sc0pe of the major administrative functions

is available.

 

113See 0. W. Wilson, Police Plannipg (Springfield:
Second Edition, C. Thomas, Publisher, 1957), Chapter I for
additional discussion.

55

In short, the police writings treat the subject of
the functions of the executive very broadly and are con—

siderably lacking in detail from a functional point of View.

Analysis p; the business literature. The writers of
the non-police literature present varied interpretations as
to the role of the administrator or executive. Their list-
ings included two to five major activities in some cases and
ranged to include as many as fourteen items in other
instances. The views of some authors differed from those of
others, but most agreed on the rudimentary functions of an
executive. Disagreement existed mostly over terminology.

As a whole, the business literature is available in
greater quantity than is the police literature. Its authors
developed their views in greater detail than did their police
counterparts. Perhaps the reason for this difference lies in
their interest in this area over a longer period of time.

In addition to existing in greater detail, the
business authors appeared to also hold an advantage from a
qualitative standpoint. Many writers developed their sub-
ject matter to a much greater depth than did the police
authorities. However, the same criticism as previously made
concerning the police data is also applicable to the business
literature, but to a lesser degree. Here again the content
of the books and articles concentrated on defining areas of
re5ponsibility rather than describing the administrators

role functionally. They did delve into functional aspects

56

more so than the police writers, but not to the degree
necessary in this author's estimation. Here again the dual
questions of (Who plans? and At what level are certain plans

completed?) often go unanswered.

The_pplice and business literature compared.
Generally speaking, the duties and responsibilities of the
police administrator and business executive appear to be
quite similar judging from the content of the literature re-
viewed. Many administrative responsibilities defined appear
in both literary Spheres. In addition, much of the writing
that appears in the police-oriented texts and/or journals
often is footnoted to authors outside of the police field.
Many reference notes are attributed directly to the business
literature as a whole. The books and periodicals of both
factions contain much the same terminology describing execu—
tive functions.

Figure II is a compilation of terminology appearing
in the published works of the police and business literature
reviewed. The reader should note the similarities involved.
Both columns contain many identical terms as well as synonyms
of words appearing in the other's list.

Along with similarities in terminology, Figure II
exhibits in a cursory manner the fact that the business
literature along these lines is considerably more developed
than are the police writings. This can be attributed to the

actuality that people from the business circles have been

57

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58

publishing in more quantity over a longer time span than

have police authors.

The literature and the hypothesis. The literature
generally supports the contention of the hypothesis put
forth in Chapter I. Both groups describe almost identical
duties as those belonging to persons serving in executive
capacities. While some differences do exist between the
writings of both fields, they largely involved matters of
terminology only, and seldom content. Some authors varied
in their lists of executive activities, but such lists con-
tain a core of responsibilities which differ only slightly.
In both the police and business literature, these core
duties and responsibilities are similar. Extracted from

Figure II they appear below in Figure III.

FIGURE III

COMPARATIVE LISTING OF CORE EXECUTIVE DUTIES
IN THE POLICE AND BUSINESS FIELDS

POLICE BUSINESS

PLANNING . . . . . . . . . . . . . . . .PLANNING

ORGANIZING . . . . . . . . . . . . . . .ORGANIZING

DIRECTING . . . . . . . . . . . . . . .DIRECTING PEOPLE
STAFFING . . . . . . . . . . . . . . . SELECTING PEOPLE
BUDGETING . . . . . . . . . . . . . . ASSEMBLING RESOURCES
COORDINATING . . . . . . . . . . . . . COORDINATION
CONTROLLING . . . . . . . . . . . . . CONTROLLING

PUBLIC INFORMATION . . . . . . . . . . PUBLIC RELATIONS
EXTERNAL RELATIONS . . . . . . . . . . EXTERNAL RELATIONS

59

Figure IV exhibits the relationship that exists be-
tween the core executive duties appearing in the police and
business diciplines and headings extracted from the model.
Note that the model headings are not identical to the
literary listings. However, all three groups are very
similar.

The reader is reminded that the model presents cri—
teria for identifying administrative policy making positions
in general, and it is not intended to be an all inclusive

listing of executive functions.

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CHAPTER IV

CASE STUDIES

Introduction. This chapter presents narrative
summaries of case studies of police and business executives.
They were conducted in an attempt to test the validity of
the hypothesis under study. The initial section treats the
police interviews, the second deals with the business realm,
and the third, is an analysis of the data uncovered. In all,
eight case studies are reported with four stemming from

talks with police and business administrators respectively.

Methodology. Four executives were selected at
random in each group. There were two primary considerations
that limited the selection procedure: (1) the availability
of the individual executives, and (2) their willingness to
participate in the study. Representatives from both groups
came from levels in middle management. Care was exercised
to insure that the persons studied from both spheres held
such positions. It is assumed that this level of adminis-
trative rank performs work that typifies the functions per—
formed by the general executive.

The interviews were loosely structured. Each inter-

viewee was asked to describe the various duties and

62

responsibilities of his position in detail. In as much as
each case study served to test the model presented in Chapter
II, the writer utilized it as a basic frame of reference for
each interview. If the respondent failed to cover points
contained in it, or wandered in his presentation, the inter-
viewer asked pertinent questions to center attention on such
parts of the model.

The case studies serve to add a measure of reality
to the study. They test the hypothesis in a dynamic

environment.

A. Police Case Summaries

Case Summary No. 1

Background. The police administrator interviewed

 

holds the position of executive officer in one of the older
state police agencies in the country. His rank is in accord
with the position and is classified under the civil service
statute as that of Major. He is second in the department's
organizational hierarchy being subordinate only to the state
police commissioner. He might well be classified as the
assistant to the commissioner and, by and large, performs a

combination of line and staff activity.

The case study. He described his job as "assisting

 

the police commissioner in every possible way." Oper-
ationally, both line and staff functions are channeled through

his office. This particular police executive is in a

63

position to perform a multitude of tasks and is often called
upon to do so. In this instance, a delineation according to
a line and staff pattern would be inaccurate. Frequently,
when vital incidents occur, this man is called upon to act
in the capacity of a line commander and take charge of all
state police personnel at the scene. At other times, his
job calls for service as a staff officer. However, the
primary activities of the position itself are of a staff
nature. This fact will become evident as the case summary

unfolds.

Planning. The commissioner has delegated a large
portion of the planning function to the executive major.
His chief responsibilities in this area include the develop-
ment of a variety of departmental programs and procedures.
Many plans are personally developed. After they are formu-
lated, all designs are subjected to review by the total
compliment of personnel holding the rank of captain. These
men critique the scheme(s), and they are subsequently re-

written as necessary.

Budgetinq. This state police agency employs a full—
time civilian business manager who bears the leading re-
sponsibility in the preparation of the budget. Major X re-
views the pre—prepared fiscal plan and makes recommendations
as needed. By virtue of his having the ear of the com-
missioner and the relationship being close organizationally,

his voice carries considerable weight in this area.

64

Appointing authoripy. With regard to appointing
authority, state civil service law severely limits the
exercise of discretion by the department. This activity is
performed by the state personnel department through their
testing process from entry through dismissal and including
promotion. Internally, however, it is not quite that simple.
The executive major possesses the authority to assign, trans-
fer, and discipline employees. His job description states
that he "shall supervise all personnel including civilians

in the field and at headquarters."

Policy making. In the category of policy develop-

 

ment, he plays an important role. Through his capacity as
advisory officer to the commissioner, he recommends needed
policy adoptions and makes changes that in his estimation
are necessary. Once established, all policy implementation
becomes his concern. This activity consumes a sizable

amount of his time on the job.

Direction and supervision p; manpower. His position
in the organizational hierarchy places him in command
(through the chain of command) of all but a few units that
report directly to the commissioner (business manager, fire
marshal, detective divisions, commissioner's staff, and the

governor's staff).

Recognized pp responsible for major activity. Major

 

X, in effect, is directly responsible for most activities

65

performed by the department. Certain exceptions have been
noted above, but they do not detract from the stature of his
position. He is frequently called upon to appear before
state level legislative committees, to work as a consultant
with municipalities, and appear in speaking engagements be-

fore civic organizations.

Concern for adequacy p; pprformance. Since his
position places him in an accountable position for the proper
functioning of the agency, he shares great concern for in-
suring compliance with departmental rules and regulations.

To accomplish this end, he expressly commands an inspections
unit located directly under his supervision. The unit's duty
is to check various activities within the organization to in—

sure specified procedures are being followed.

Analysis. Case study number one indicates the indi-
vidual interviewed functions as an executive meeting the
criteria set forth in the model. In fact, his responsibili—
ties include duties covering all seven points.

The notable item contained herein, consists of Major
X's dual capacity as a line ppp staff administrator. The
normal delineation of a position being either line pp staff
can not be made in this case. Instead, his position possesses

activities in both areas.

66

Case Summary No. 2

Background. This executive holds the civil service

 

rank of Captain in one of the largest law enforcement
agencies in the country. He is located near the center of
the organizational hierarchy with a number of ranks above
and below his position.

The job is that of a line commander administering
all police affairs within a police district of a large city,
and one-hundred and seventy personnel work under his

supervision.

The case study. Although this individual can be

 

classified as an executive, limitations have been placed on
his position with discretionary action only permissible in

some areas .

Planning. The area of greatest limitation is that
of planning. The police department has centralized planning
Operations: and, as a result, little is performed at the
district level. Region commanders are not permitted to de-
sign preventive activities. He possesses no control over
beat layouts and is not permitted to distribute or re-
distribute patrol vehicles under his command. The only
discretion permitted involves the assignment of personnel.

He may determine who shall be assigned to what beat(s).

Budgeting. His budgeting duties are also restricted.

This is a centralized function of the department due to

67

administrative necessity. He is permitted to request items
such as building repairs, increases in manpower, and addition—
al equipment; but approval for expenditures must come from

higher authority.

_Appointing authority. The captain possesses dis-

 

cretionary powers in this regard. He can assign and re-
assign duties to employees under his direction as long as
they relate to civil service classifications. It is per-
missible for him to ask that persons be removed from the
district or assigned to it by name. Higher command makes
the final decision. He has sole discretion in the appoint-
ment of vice officers and can change personnel engaged in

this assignment at will.

Policy making. The function of the interviewee is

 

advisory. In staff meetings with superiors, he makes his
views known. Decisions come from higher authority. Those in
a position to make policy actively seek his advice on matters
affecting his district. Captain X was quite candid in
stating that, while discretion in adopting minor policies is
allowed, in reality it is difficult to act without approval
from top side. He believes that enough latitude exists to

allow a fair job to be accomplished.

Direction and supervision p; manpower. A total of
170 sworn and civilian employees are under his command

ranging in rank from lieutenants through clerks. These

68

people perform the many activities necessary to provide
police protection in a large urban area. Discretionary
duties are carried out by supervisory officers, and other
personnel execute routine activities in the main. Both
routine and discretionary duties are delegated through the
chain of command with all subordinates accountable to the
Captain for the prOper performance of their duty. He, in
turn, is accountable to his superiors for the administration

of the district.

Recognized pp responsible for major activity. The
department recognizes him as responsible for the district,
its men, and their equipment with an area of fifteen square
miles. Often the citizens of the district seek assistance
and explanations of department activity from him, and he is

often asked to speak before local civic groups.

Concern for adequacy p; performance. He authorized
the development and use of an employee rating system de-
veloped by one of his subordinates. This allows supervisors
to obtain a better composite of all employees in the district.
Captain X believes the system to be an improvement aiding

him in controlling his jurisdiction.

Analysis. This case summary describes an individual
who can be classified from an organizational standpoint as
an executive, but for explainable reasons does not exercise

the full amount of activity described in the model. His

69

activity in the area of planning is limited to some degree.
Throughout the remaining factors covered in the model, he
performs in the capacities described therein. Captain X
works within a highly specialized and structured police
agency, and this factor probably accounts for the controls

placed upon his position.

Case Summary No. 3

Background. This police executive holds the civil

 

service rank of captain in a large county sheriff's police
department. He is assigned to the job of commanding the
administrative division and serves solely in the capacity of
a staff officer. The captain is located near the apex of
the organizational pyramid with a deputy chief, chief, and

the sheriff himself above him in grade.

The case study. Captain X is responsible for ad-
ministering staff duties as prescribed by his superiors. He
is concerned with keeping the department running smoothly by
overseeing various auxiliary functions. Six individuals work
under his supervision, and he possesses technical supervisory

authority over the whole organization.

Planning. He plans on a department—wide basis only

 

when the scope of such plans involve staff problems. His
planning duties are limited in this respect. Under his
direction, the administrative division planned and instituted

a new records system, established a data processing procedure

70

to keep track of fleet automobile costs, and developed
methods centralizing the control of department property. He
is free to develop other systems to aid in creating more

efficient procedures.

Budgeting. The responsibility for the preparation

 

of the entire budget rests with his office. He and his

staff prepare the fiscal plan for the approval of the chief
of police and the sheriff. This process includes compiling
requests and their justifications from other command officers.
Captain X possesses the authority to grant or refuse such
proposals. Also, once the budget is approved by higher

authority, his office becomes the department comptroller.

pAppointipg authority. This administrator can, with-

 

in his own division, assign and reassign personnel at will,
but such actions must coincide with civil service regulations.

In addition, he aids the County Merit Board in
examining, screening, and hiring job applicants. Appoint-
ments are made from an eligibility list developed in liaison
with the merit board. It is appropriate to note at this
point, that the merit board only supervises the hiring, pro—
moting, and firing of sworn personnel. Decisions involving
civilian employees are discretionary on his part.

With the office of sheriff being political in origin,
certain patronage positions exist in non-sworn capacities.
Men and women come recommended for such work by political

people. Captain X has the power to veto such appointments

71

if they are not in the best interest of the sheriff's police

department.

Policy making. Within the confines of his area of

 

responsibility, he is a policy maker. His office drafts
rules and regulations which concern any number of things
that set department policy. Prime examples would be the
regulations governing the method of handling automobile

accidents involving the department's vehicles and the es-

tablishment of department records and filing procedures.

Direction and supervision p; manpower. In a super—
visory capacity, his activity is limited, since six people
work immediately under him. The Span of his authority to
direct personnel with regard to matters for which he is ac-
countable is large. He is empowered to technically super—
vise all employees in such cases. This would include 178
sworn and 29 civilian employees for a total of 208 people.

The six individuals under his command range from a
director of planning and research, who performs a number of
important discretionary duties, to clerk-typists responsible

for routine tasks.

Recoqpized pp responsible for major activity. During
budget hearings, he sometimes presents and defends monetary
requests. He is responsible for all of the property owned
by the sheriff's office, police and otherwise. Captain X
maintains liaison between the police department and the

sheriff's office as a whole and with other county offices.

72

Concern for adequacy pp performance. Since most em-

 

ployees of the agency are not under his control, it is im-
possible for him to check their work personally. To insure
proper performance, units of the organization are required to
submit monthly reports, answer memos, reply to complaints,

and submit to personal inspection.

Analysis. This staff commander falls within the
criteria of an executive contained in the model discharging
duties in all classifications described. He holds a staff
position, and performs in these capacities only in relation

to his specialty.

Case Summary No. 4

Background. A large state police organization
located within a medium-sized state provides the backdrop
for this interview. The executive is the commander of the
records division and holds a civil service rank of captain.
His assignment concerns work totally of a staff nature. He
is responsible for the operation of the department's record
system and, as such, directs the efforts of approximately
eighty employees.

His rank places him near the tOp of the rank
structure. He is directly accountable to the commissioner
of state police for the proper performance of prescribed

duties.

73

The case study. The scope of his job is limited,

 

but within its confines he performs many functions.

Planning. The captain described himself as constant»
1y trying to improve methods used by his division. To say
that he sits down and works at a planning program would be
an error. "It is a constant review." A good percentage of
his time is spent developing future long-range innovations,
as well as revising older procedures.

The planning function is specialized in the de—
partment. Captain X meets with a planning specialist as
problems arise and explains the situation at hand. It be-
comes the responsibility of the planning agent to develop
and recommend a solution. Proposed solutions are critiqued
by the division commander according to their feasiability.
If the changes contemplated involve other divisions, they
are presented to the district commanders affected and their
comments are sought. Plans are reworked in the light of
their suggestions if practical.

While Captain X does not possess the entire re-
sponsibility with regard to planning and the mechanics in-
volved, he does exercise a voice. This planning procedure
is not used in solving routine problems. Instead, it is
utilized in conjunction with matters of sizable magnitude
and importance, e.g. computerizing departmental records.
Items regarded as routine are planned and changed entirely

within the division, e.g. form changes and filing procedure

74

modifications. Captain X has charge of this activity. Other
division commanders are consulted if proposed changes affect

their units.

Budgeting. It is his responsibility to develop and

 

submit a budget request to cover the cost of operating his
division each fiscal year. The request is forwarded to the
business manager to be included in the overall budget. The
captain delegates this activity, but reviews the draft prior
to its submission. He has the authority to approve or dis-

approve requests made by his subordinates.

Appointing authority. He passes on all civilian and
sworn personnel assigned to his division. A single indi-
vidual is assigned this activity and makes the final determin-
ation in most cases. The captain is consulted if the sub_

ordinate deems it necessary.

Policy making. Full authority exists for him to

 

formulate policy and policy changes inside of his division.
If proposed changes conflict with department regulations,
the captain must obtain the commissioner's approval. He is

free to exercise his own initiative within these limits.

Direction and supervisig__p£y_apppwer. Eighty em-

 

ployees comprise the total compliment of the records
division. Of these, four are sworn members of the state
police department, and seventy-six are civilian civil

servants. Some personnel from both factions perform

75

discretionary activities. A sergeant is responsible for em-
ployment interviewing, and a lieutenant, along with the same
sergeant, work at preparing the yearly budget. Most civilian
members perform routine duties, but a few serve in super-

visory capacities.

Recognized pp responsible for major activity.

 

 

Captain X is charged with maintaining all state police
records and for storing certain data as required by law:
(1) files on persons having been convicted of a felony or
serious misdemeanor and on well known or habitual criminals,
(2) files on all persons committed to penal or mental insti-
tutions in the state, and (3) the fingerprints of the above
individuals and of any person who requests his prints be put
on file for purposes of identification. Occasionally, his
appearance is required in court to testify in regard to
these records.

Intra_departmentally, he is recognized as responsible

for a major staff activity.

Concern for adequagy p: performance. He has author-

 

 

ized the use of a system whereby all employees under his
control are required to account for their time.* Most of
their duties have been time studied. The individual's work
rate is recOrded and compared with an average. If work time
is devoted to performing jobs that cannot be time studied,
close supervision is used. Work records are kept on each

employee to insure proper use of daily activity.

76

Analysis. The interviewee falls within the scope of
the model. However, his planning duties are limited due to
the partial specialization of that function by the agency.
With this limitation in mind, he stated that he is active in

all seven classifications of the model.

B. Business Case Summaries

Case Summary No. 1

Background. The interviewee is employed by a medium-

 

size manufacturing concern and serves the corporation as
director of operations. He is answerable to two individuals:
the president and general manager. The company is a sub-
sidiary of a larger corporation, but it is permitted to

carry on its activities independently of the parent corpor-
ation. This executive serves the enterprise in a line
capacity with his major responsibilities resting in the area

of production.

The pass study. Mr. X, as head of operations, is an

Y——‘

 

administrator who possesses a multitude of responsibilities
and oversees the entire manufacturing process of the company.
Upon receipt of an order from the sales division, his job is
to regulate the purchasing of materials within a pre-planned
cost structure and, subsequently, to schedule the manufacture
of the vehicle. Further, he is responsible for building

maintenance, and for the upkeep of all machines, tools, and

77

equipment. In short, it is his duty to see that customers

get their product on time and built to their specifications.

Planning. Part of his position consists of develop—
ing a five—year projected plan covering such items as needs
relating to new machines, building improvement and repair,
and product develOpment.

For purposes of more immediate planning, the concern
maintains an executive staff board whose membership is com-
prised of five division heads. The interviewee is a member
of this board. Its function is to inform each other on
current problems and planned solutions. In this way mutual
advice is received on a formal basis. Each executive is
responsible for developing plans in relation to his job as—
signment. The thought behind utilizing the staff board is
to provide all members with information pertaining to the

organization's problems as a whole°

Budgeting. His activity in this area is somewhat
restricted. Each production item is pre-priced in terms of
expenditures for the material needed to build it. He over-
sees subordinates in this respect making sure that they stay
within alloted costs.

Also, his office prepares annual estimates of capital
outlay, and submits the appraisal to the parent corporation.
Once they are appropriated, he is authorized to expend funds

for approved items.

78

Appointing authority. He has full control over all

 

areas under his jurisdiction with regard to personnel matters.
Methods and procedures for handling hourly employees are

fully delegated. Practices are different for prospective
employees desiring supervisory positions. In such instances
he interviews them personally after they have been approved
by the employment manager and the shop superintendent. The

final decision remains his to make.

Polipy making. Policies are formulated in a unique
way. Mr. X outlines his desires pertaining to what he would
like initiated in the form of a memorandum. The memo goes
to the desk of an IBM specialist who contacts all departments
concerned, and writes a workable policy statement. Once in
final form, the statement must be approved by at least two
of the five members of the executive board. Usually all
policies carry Mr. X's signature along with that of one

other board member.

Direction and supervision of manpower. He is re—

 

sponsible for the direct supervision of six division super-
intendents: materials, purchasing, maintenance, sheet metal,
product assembly, and engines. A large number of discretion-
ary duties are performed by these men. Indirectly, his
authority covers eighty foremen and twelve_hundred hourly

employees.

79

Recognized pp responsible for major activity. His

 

job, as director of operations, is to see that ordered
products are manufactured according to schedule and delivered
to company customers. This responsibility entails super-
vising the entire manufacturing process from purchase of
equipment and materials to final assembly and delivery.
Additionally, he is responsible for building maintenance,
capital expenditures, and the upkeep and replacement of

equipment.

Concern for adeqpapy pi performance. Employees are

 

required to turn in time slips describing the work they per-
formed and the time spent in doing so. The work slips are
coded and fed through a computer, and the resulting efficiency
report is transferred to the office of the Operations manager.
Departments with a low rating are required to answer for such
performance. In this manner production levels are checked

on a monthly basis.

Analysis. The executive interviewed serves his
organization in a line capacity, and in doing so performs in
all areas specified in the model. His budgeting activity is
highly structured in reference to manufacturing, but it is
liberal regarding capital expenditures. He exercises con-

siderable discretion in all other activities.

80

Case Summary No. 2

Background. This business administrator is employed
by a large public utility company, and serves them in the
capacity of an area manager. His position is one of a
middle manager as there are a number of ranks above him in
the corporation. The activities for which he is responsible
fall within a staff classification. He is one of a trio of
executives who oversee all corporate activities within their

assigned jurisdiction.

The case study. His job consists of several duties.
Administratively, he is responsible for all commercial as-
pects of the company, all business contacts with its
customers, the total public relations program, and the re-
cruitment, selection, and placement of hourly employees with-

in the Lansing area.

Planning. He is required to forecast future needs
for the service provided by the company and for the develOp-
ment of programs aimed at improving the organization's public
image. In forecasting needs, Mr. X contacts the land de—
velopers of the area. This allows his agency to keep abreast
of growth in the metropolitan area, and assists the company
in providing adequate service to their customers. Capital
outlay for growth is governed by the amount and location of
building activity.

The corporation contracts for a public opinion survey

with an outside firm on a yearly basis. Through this medium

81

an attempt is made to determine customer attitudes. Using
the results of the study, it becomes his job to chair a
three-man committee whose function is to plan programs to

counteract criticisms discovered during the poll.

Budgeting. Each fall the budget is prepared for the
ensuing year. Supervisory employees throughout the chain of
command are required to submit cost estimates for their par-
ticular operations to their superiors. Thus, all figures
are funneled to the office of this executive. He drafts the
proposal for his department and forwards it to district head-
quarters for approval. Once the fiscal plan is finalized, he

M

oversees its administration.

.Appointing authority. Hourly rated employees are
under his span of control. He has the Option of approving
or disapproving their appointment or promotion. The trans—
fer of salaried personnel takes place at a higher level and
is not within his realm of responsibility. He is required
to accept those transferred from other branch offices into
his structure. Mr. X exercises a voice on such transfers

through his superior.

Policy making. The administrator does not formulate
company policy. The practices of the corporation, outlined
in a practices and procedures manual, are specific and cover
all operations. In essence, his function is to administer

in the light of established standards.

82

Direction and supervision pp manpower. This execu—
tive has the directors of the New Orders and Billing De-
partments reporting to him. They are allowed to exercise
discretionary judgement in relation to their specialty.

Other employees under his supervision perform routine duties.
His supervisory control extends directly to two managers and

indirectly downward covering two-hundred and fifty workers.

Recognized pp responsible for major activity. A
large part of this administrator's duties brings him into
close contact with the public. He is responsible for main-
taining liaison between the company and the community as a
whole and is frequently in contact with service clubs, city
officials, chambers of commerce, schools, other industrial
organizations, and news media. It is his job to see that

they are aware of the many services offered by his employer.

Concern for adeguagy of performance. To assure

 

adequate performance levels from all employees, the corpor-
ation Operates an extensive personnel evaluation and ap—
praisal plan. Observers set standards of performance and
workers are measured according to them. Hourly employees
are appraised twice yearly, and salaried personnel annually.
This executive personally rates the managers

directly under his control and reviews the ratings of all
other employees. If in his view a rating is unjust or ex-
tremely harsh, he has the power to undertake appropriate

corrective action.

83

Analysis. The most notable item contained in this
case study is the variety of staff assignments for which
this executive is responsible. He is active in all areas
specified in the model except one—-policy making. Policy
formulation is a process reserved to very high-ranking

executives.

Case Summary No. 3

Background. The individual interviewed works as the
advertising manager for a large insurance company. His
formal rank is that of a department manager. This adminis-
trator serves in a staff position and does not participate
in field activities to any degree. He answers directly to

the secretary of the organization for his actions.

The case study. Specifically, his job is overseeing
and directing all company advertising. In doing so, he
supervises two different programs: (1) advertising geared
toward the general public to improve the image of the enter-
prise, and (2) advertising aimed at independent insurance
agents for purposes of obtaining a share of the policies they
write for their customers. The methods used cover most
forms of mass media communication. It is his responsibility

to develop and maintain adequate programs in these areas.

Planning. With the aid of a professional advertising

 

agency, he plans improved and/or new schemes. The above

84

firm is employed in order to obtain the services of
specialists without actually having to outlay the costs of
permanent employment. The interviewee explains what his de-
sires are and leaves many of the details to the agency. He
functions as overseer and coordinator. His superiors hold

him responsible for all company advertising.

Budgeting. The operating budget for his department
is set by a fixed formula. Annually, he directs a budget in
excess of four hundred thousand dollars. Approval for
expenditures from higher authority is required only if spends

ing for the fiscal year exceeds the total appropriation.

.Appointing authority. He selects people for posi—
tions in his department in cooperation with the personnel de-
partment. If at all possible, they are selected from within
the company. He has the authority to accept or refuse

applicants and has the final say in the matter.

Polipy making. The position held by this executive

 

is not one vested with policy making power. Usually the
board of directors decides where and what items to advertise,
and he is told to develOp a program in conjunction with their
decision. He reported that his realm of activity is mostly
defined for him, and most of the arrangements required are

his responsibility.

Direction and supervision of manpower. This par-

ticular administrator, supervises four individuals, and they

85

perform non-discretionary duties (magazine editing, order
filling, and stenographic work). Indirectly, he technically
supervises all company sponsored advertising for all agents.
The advertising agency exercises liberal discretion
in the development of programs. The members of the agency
are considered experts in the field, and he oversees their
work and approves or disapproves of drafts prior to their

use .

Recognized pp responsible jg; major activity. His
job assignment consists of overseeing the advertising
activity for the entire company, while serving the organi-
zation in a staff capacity. The enterprise and its inde-
pendent agents depend upon him for coordinating a well-

rounded program.

Concern for adequacy-p; performance. He supervises
his subordinates closely because they are few in number. It
is possible for him to view their performance adequately in

this manner.

Analysis. The executive's activities fit the model
well in some areas and to a modified degree in others. He
is engaged in activity which involves planning, appointing
authority, the direction and supervision of manpower, and
showing a concern for adequacy of performance. He exercises
little discretion in the develOpment of a budget or policy

formulation. In short, his job is to implement the desires

86

of the board of directors regarding the specialty of his

occupation.

Case Summary No. 4

Background. The executive questioned is employed
under the title of general manager in a large retail de-
partment store. In this capacity he operates as secretary
to the board of directors, corporation treasurer, and
comptroller. His position places him as the second highest
ranking officer in the organization, as the only office
above him is that of the president. This man serves in a
staff situation which is predominately financial in

character.

The case study. He is concerned with what the seven
divisions of the company spend more than what they do. Mr.
X supervises the spending program of the entire organization.
As secretary of the board of directors, he records the

minutes of each meeting and keeps the corporate seal.

Planning. Planning responsibility rests with a five-
man committee, and their function is to devise programs for
future development. This executive, the director of
personnel, the director of advertising, and two merchanising
managers serve in this capacity. The committee plans and
develops capital expansion programs along with general
merchandising devices to improve the present standing of the

store.

87

Budgeting. Because of the interest of his Office in
fiscal affairs, he formulates the monetary allotments for
operating expenses. When the activity is of a non-revenue
producing nature representing a fixed cost, it must operate
within the budget prepared by this executive. Appr0pri-
ations for revenue-producing departments (sales) are
flexible. Instead of a budget a monthly purchase plan is
developed using the previous year's experience as a guide.
These plans are not static in the same manner as a budget,
and changes to meet varying customer patterns are easily

made.

.Appointinq authority. Together, the president and
the general manager decide on the appointment of all mana-
gerial and supervisory personnel. This is usually performed
through a review of applications and work records; and,
occasionally, interviews are held with aspiring individuals.
Division managers are consulted on all appointments within
their departments. Final decisions are made by this execu-
tive and the president of the corporation. The hiring of
hourly employees is a completely delegated task handled by

the personnel department.

Policy making. The same group of individuals re—
sponsible for planning functions decides company policy as
well. Meetings are held when needed, and decisions reached

through general agreement.

88

.pirection and supervision pg manpower. His position
being the second highest in the hierarchy, this executive is
responsible for the finances of all divisions of the corpor-
ation. In regard to this specialty, he oversees seven
division heads and allows them to exercise considerable dis-
cretion in running their respective departments. Techni-
cally, although seldom exercised, he possesses line authority

to supervise all departments operationally.

Recognized pp responsible for major activipy. He is
charged with maintaining the financial integrity of the
company and supervises expenditures throughout the store.
His stature as second in command of the entire organization

makes his position an influential one.

Concern for adequacy pg performance. This executive

 

requires department heads to submit monthly reports for
purposes of comparing them with the previous year's results.
Since the major objective of the corporation is to realize
a profit, success is judged on overall net gain for each
department. When units fall below performance expectations,

measures are introduced to correct the situation.

Analysis. The duties and responsibilities of this
executive fall within all areas described in the model. His
activities are largely financial in scope; but, on an over-
all basis, he participates as a member of a select committee
responsible for planning future development and for formu—

lating policy.

89

C. Summary of Comparative Discoveries

Police case study summation. The law enforcement
officials interviewed serve their organizations in differing
capacities. One administrator is active in line and staff
responsibilities, another is solely a line commander, and
two executives hold staff positions. Within the context of
their individual assignments, they engage in performing
functions that generally fit the seven categories of the
model. One exception is noteworthy. The district commander
in case study number two does not engage in planning programs
within his agency. In addition, his authority to formulate
policy is limited to offering advice only. Such restrictions
are attributable to organizational structuring and not to
the ability of the administrator to perform the function.

On an overall basis, and in view of the above
exceptions, it is the Opinion of the writer that the duties
of the police executives studied conformed to the criteria

set forth in the model.

Business case study summation. The business execu-

 

tives also served their organizations in varied assignments.
Their duties tended to include many more responsibilities
than did their police counterparts, and a line staff deline-
ation is difficult to make. With the exception of case
study number one, these individuals largely perform combi-

nations of such duties. The author found it perplexing to

90

attempt to classify the remaining three business officials
as line or staff.

Generally, the duties discharged by the business
administrators coincided with all seven points of the model.
Again, certain noteworthy exceptions were evident. The
executive studied in case study number two was active only
to a limited degree in the appointing of salaried employees
and did not exercise a voice in the development of company
policy. The advertising manager in case study number three
was not vested with policy making powers. These two indi—
viduals proved to be the only examples in which the duties
actually performed did not conform with those expressed in
the model. Again, as in the police case studies, such
variance is attributable to organizational structuring. The
duties mentioned are performed at higher levels in the
corporation.

In all other instances, the functions discharged by
the four administrators studied fit the standards of the

model.

Comparative findings. The research data uncovered
during the course of the eight interviews indicates the
positions compared to be quite similar to the model and,
thus, similar to each other. This is not to say that the
jobs and their content are the same. What it does mean, is

that the executives performed like activities in meeting the

91

responsibilities of their respective positions yig. the
functions contained in the model.

Exceptions were revealed in both spheres. They
tended to center around planning and policy making duties
and in one case covered appointing authority. However, the
similarities clearly outnumbered the dissimilarities. In
all cases, the reason for their being outside the discretion
of the executive involved was not related to the ability of
the administrator to perform the function. The reason is
attributable to organizational structuring and specialization
in the main.

Figure V is a chart listing the points of the model
in comparison with the results of the eight case studies.

If the administrator participated in the prescribed activity,
a "yes" was entered in the appropriate box, the term "none"
is used if he possessed no responsibilities within that
particular duty, and the word "limited" entered if his
activities were restricted in any way.

Figure V lends support to the major contention of
this thesis. It indicates that the functions of executives
from both factions bear a direct relationship to the model
and, thus, to one another. In short, the case studies tend

to support the hypothesis.

92

 

 

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CHAPTER V
SUMMARY AND CONCLUSIONS

The review and comparative analysis of the police
and business oriented literature reveal the duties and
responsibilities of their executives to be parallel. Authors
from both factions describe almost identical functions as
being required of persons serving in executive positions.
Some writers varied in their presentation of activities, but
their listings contained a core of responsibilities differ-
ing only slightly from one another.1

Research findings discovered as a result of the case
studies also support the findings of the model. Using the
model previously discussed as a guide, only one police execu-
tive did not engage in planning, one police administrator
could not make policy decisions, a Single business executive
had limited authority to appoint personnel, and two business
executives did not exercise discretionary activity in the
area of policy formulation. In all other functions, the
duties are directly comparative with those stated in the

model for both groups.

 

1See Figure III.

94

Conclusions. In the light of the information dis-
covered through the review of the literature and field re-
search, the hypothesis appears to be valid. The adminis-
trative duties of the police and business executive are very
similar to the model and, therefore, similar to each other.
It logically might follow that the skills necessary to per-

form them are analogous too.

Need for further research. The author does not main—
tain that this research effort is all inclusive or that the
study was intended to be completely exhaustive. It is merely
a pilot study designed to test the validity of the hypothesis.

There exists a definite need for further quantifi-
cation and qualification. It is recommended that future re-
search efforts perhaps include the following:

1. Use of a more detailed model to insure greater
comparison.

2. The addition of more case studies in greater
depth.

.Aggpestion for the police field. The discipline of
business administration has recognized the fact that oper—
ational and administrative functions bear no direct relation—
ship to one another in terms of the skills and abilities to
perform their respective tasks. Industry's view has been
that an administrator does not have to learn operations to
the extent of a practitioner--adequate familiarization is

all that is necessary.

95

This forward look has resulted in the recruitment
and employment of future administrators at a "junior execu-
tive" level and their following of a preplanned program de—
signed to develop administrative ability. The underlying
idea is to assure the corporation a pool of manpower from
which future administrators can be drawn as the need arises.
In other words, the organizations maintain and operate a
program of executive development.

This thesis has shown the duties of the police and
business executive to be analogous, and the writer would
like to know: Is the police field taking steps in a similar

direction?

BIBLIOGRAPHY

BIBLIOGRAPHY
A. BOOKS

Barnard, Chester I. The Functions pp the Executive.
Cambridge: Harvard University Press, 1960.

Briggs, G. W. Studies.in Management Techniques. London:
Gee and Company, 1953.

Cleeton, Glen U., and Charles W. Mason. Executive Ability:
Its Discovery and pevelopment. Yellow Springs, Ohio:
The Antioch Press, 1934.

Copeland, Melvin T. The Executive pp WOrk. Cambridge:
Harvard University Press, 1951.

Dimock, Marshall E. The Executive ip Action. New York:
Harper and Brothers, 1945.

Fox, William M. The Management Process. Homewood, Illinois:
Richard D. Irwin, 1963.

Germann, A. C. Police Executive ppvelopment. Springfield:
Charles C. Thomas, 1962.

Haynes, Warren W., and Joseph L. Massie. Management Analysis,
Concepts, and Cases. Englewood Cliffs: Prentice-
Hall, 1961.

Kenny, John P. Police Management Planning. Springfield:
Charles C Thomas, 1959.

Koontz, Harold and Cyril O'Donnell. Principles pp Manage-
ment: .Ap Analysis p; Managerial Functions. Third
Edition. New York: McGraw—Hill Book Company, 1964.

Leonard, V. A. Police Organization and Management.
Brooklyn: The Foundation Press, 1964.

Light, H. R. The Business Executive. London: Sir Isaac
Pitman and Sons, 1961.

Newman, William H. Administrative Action: The Techniques
pg Organization and Management. New York: Prentice—
Hall, 1951.

98

Niles, Mary Cushing Howard. Middle Management. New York:
Harper and Brothers, 1941. .

Pfiffner, John M., and Robert V. Presthus. Public Adminis—
tration. Fourth Edition. New York: The Roland
Press Company, 1960.

Pfiffner, John M., and Frank P. Sherwood. Administrative
Organization. Englewood Cliffs: Prentice-Hall,
1960.

Richards, Max D., and William A. Nielander. Readings in
Management. Chicago: South—western Publishing
Company, 1958.

Shartle, Carroll L. Execngive Performance and Leadership.
Englewood Cliffs: Prentice-Hall, 1961.

Sweeney, Stephen B., Thomas J. Davey, and Lloyd M. Short.
Education for Administrative Careers in Government
Service. Philadelphia: University of Pennsylvania
Press, 1958.

Tannenbaum, Robert, Irving R. Weschler, and Fred Massarik.
Leadership and Organization. New York: McGraw—Hill
Book Company, 1961.

The Institute for Training in Municipal Administration.
Municipal Police Administration. Fifth Edition.
Chicago: The International City Managers'
Association, 1961.

Wilson, Orlando W. Police Administration. First Edition.
McGraw—Hill Book Company, 1950.

Wilson, Orlando W. Police Administration. Second Edition.
New York: McGraw—Hill Book Company, 1963.

Wilson, Orlando W. Police Planning. Springfield: Charles
C Thomas, 1957.

B. PERIODICALS

Allen, Louis A. "The Good Manager: DO We Know What we're
Looking For?," Personnel, 37:8—15, January-February,
1960.

Allen, Louis A. "Wanted—-A Science of Management Organi—
zation,“ Advanced Management, 24:21-24, January, 1959.

99

Appley, Lawrence A. "Management and the American Future,"
in Max D. Richards and William A. Nielander. Read—
ings_in Management. Chicago: South-Western
Publishing Company, 1958.

Braybrooke, David. "The Mystery of Executive Success Re-
examined," Administrative Science Quarterly, 8:533—
560, March, 1964.

Day, Frank D. "Police Administrative Training," The Journal
.pfi Criminal Law, Criminology, and Police Science,
47:253-256, August, 1956.

 

Dinsmore, William F. "Supervision, Management, and Adminis-
tration," Personnel, 39:77-80, July-August, 1962.

Gourley, G. Douglas. "What is Police Management?," Police,
3:34-37, May-June, 1959.

Gourley, G. Douglas. "What is Police Management?," Police,
3:60-62.Ju1y-August, 1959. - ~ —

Hay, Edward N., and Dale Purves. “The Profile Method of
High Level Job Evaluation," Personnel, 28:162-170,
September, 1951.

House, Robert J., and John M. McIntyre. "Management Theory
in Practice," Advanced Managpment, 26:16-22, October,
1961.

Katz, Robert L. "Skills of an Effective Administrator," in
Max D. Richards and William A. Nielander. Readings
.in Managpment. Chicago: South—Western Publishing
Publishing Company, 1958.

 

Murdick, Robert G. "The Meaning of Management as a Pro—
fession," Advanced Management, 25:11-16, April, 1960.

Pamp, Frederick E. "Liberal Arts as Training for Business,"
Harvard Business Review, 33:42—50, May-June, 1955.

Pickus, Morris I. ”What a Manager Must Be," Personnel
Journal, 42:580, December, 1963.

Stieglitz, Harold. "Organization of the Chief Executives
Job," Management Record, 23:2-9, February, 1961.

Wrightnour, William F. "Management Development: A Practical
Application," Personnel, 28:285-298, January, 1952.

 

. "In the Record," Management Record, 24:1, May,
1962.