In other cases it alone comprehends all that would come under such designation. The same confusion exists in respect to the titles that are employed to designate heads of administrative services. Among the titles most commonly employed to designate chief administrative officers are: "Chief of bureau,"" commissioner," "director," "superintendent," though special titles, such as " Forester," are by no means uncommon. The titles used in the outlines are those reported to the commission. In one important respect the commission has not attempted to be consistent: Although the outlines as a rule indicate units by office designations, in many cases use for this purpose is made of the title of an officer. To have done otherwise would have meant the coining of a name for the office or the prefixing of the words "office of." It was not thought that any gain in clearness would result from doing this.

CHARTS OF ORGANIZATION.

The second step indicated as a desirable one to be taken in order to present full information regarding the organization of the Government is that of the preparation of charts of organization. The function of the charts is to serve as an illustration of the outlines in order that the significant features of the outline may be more readily seen. It is not essential, indeed in many cases it is hardly desirable, that the charts should picture all the details shown in the outlines; but, as far as they go, they should correspond rigidly to the outlines. As recommended in the case of the outlines, the charts should be constructed upon the loose-leaf system, main subdivisions being shown on one sheet and supporting details on accompanying sheets. In one important particular the charts can be made to convey information that can not be shown by the outlines. By use of dotted lines interrelations between units of organization other than the relation of direct administrative authority can be indicated on the charts. In many cases this aids materially in making known the character of the organization as a piece of working mechanism.

MAPS OF ORGANIZATION.

The third feature of a complete plan to describe organization is the preparation of maps that will indicate all points at which any given service or department, or of the Government as a whole, is maintaining any station or other unit of organization, or is exercising any function. These maps can be made to serve one of the most useful purposes of the whole compilation. There is a tendency on the part of persons connected with the Government at Washington to look upon the work at Washington as constituting the real Governinent of the United States. In point of fact, a characteristic feature of the National Government is that it administers a service, the real working units of which are in great part scattered throughout the United States and, indeed, to a certain extent, throughout the world. The services at Washington, in the main, constitute merely the central office for the performance of the necessary clerical and other work required in exercising proper supervision and administrative control over the work being performed in the field. It is this fact which

makes the problem of administration of the National Government essentially different from and more difficult than the problem of administration of the government of municipalities. It is in the maintaining of stations and in the performing of work in the field that the great bulk of expenditures for the conduct of the National Government is incurred. If there are unnecessary services or units of organization; if effective use is not made of such units as should be maintained; if there is duplication of services or plants; and if waste or inefficiency exists through a failure to correlate the operations of different units or centralize the performance of particular kinds of work, it is probable these defects will be found in the field services rather than in the offices of general administration at Washington, which are under the immediate direction and control of the managing officers. For this reason it is imperative that any plan to set forth the organization of the Government should include as one of its essential features means for making known the exact situation of affairs as to units of organization maintained in the field.

The outlines of organization will indicate all such units. In order that their relations to each other may be readily seen, and the extent to which they are located at the most advantageous points can be considered, it is necessary that this location should be shown by maps. The use of maps, moreover, presents the advantage that field stations of different services can be shown in relation to each other, something which can not possibly be done by the outlines. Thus, in addition to preparing maps showing the field stations for each service individually, consolidated maps can be made for two or more related services, or for all services under the same department, or for all services of the Government. In these consolidated maps the different services can be distinguished from each other by the use of different symbols, such as circles, crosses, and stars, to indicate the stations of the different services. In the same way stations of a different character belonging to the same service can be distinguished.

Use of maps in studying field services. With this graphic description of field conditions before him, it is evident that the head of a service or department is in a position to make a critical examination of the extent to which his service or services are organized in the most effective manner for the performance of their work in the field. The maps may show that one department is maintaining a number of stations pertaining to the different bureaus or services under its jurisdiction at the same points. The questions whether this duplication of stations is necessary and whether the stations maintained by one service can not be utilized by other services will naturally arise. There are many cases where it is necessary for a service to have a representative at a given point, though the amount of work to be done there may be such as to require but a small amount of simple work. In one case at least, the customs service, the practice is now followed of having field officers perform duties for other services. That other cases exist where the same economy can be realized can scarcely be questioned.

Inquiry may also reveal the fact that the stations of different services maintained in the same city are located in several buildings in different parts of the city, and that economy and increased efficiency may be realized by having these stations housed in the same building or at least in buildings located near each other.

In like manner, the information furnished by the maps regarding the location of field stations will lay the basis for a careful consideration of the problem of the most effective and economical administration of the work of field inspection. At the present time independent inspection work is being done by the several services. It may happen that a number of inspectors, representing different bureaus in the same department, may leave Washington at the same time for the purpose of inspecting stations in the same city. It is very likely that the fuller knowledge regarding field conditions, such as will be furnished by the maps, will permit of the working out of means by which closer cooperation between services in respect to inspection work can be secured, and the present enormous expense for travel may be materially reduced.

The foregoing is by no means intended to exhaust the subject of the ways in which use may be made of the information regarding field stations that is furnished by the outlines and maps. Many other ways, such, for example, as their use in studying the problem of the purchase and distribution of stores, and of equipping and repairing vessels, will suggest themselves. Indeed there is not a problem of administration having to do with work in the field that can not be better handled with this information available for ready reference.

CLASSIFICATION OF ORGANIZATION UNITS BY CHARACTER.

The fourth feature mentioned, that of the classification of organization units by character, has two purposes, that of giving to the administrator information regarding the organization units under his direction in the form needed for current use, and that of taking the first step in the analysis of the information furnished by the outlines looking to a critical study of organization conditions with a view to determining what improvements, if any, can be made. Thus, for example, the outlines of organization of the Navy Department will show for each naval station the subordinate units, such as torpedo station, wireless telegraph station, hospital, dry dock, etc. The administrator, however, will want to know, not only the organization of each naval station, but how many units of each kind he has and where they are located. To furnish him this information in readily available form, it is thus necessary to prepare lists of torpedo stations, dry docks, etc. The same is true of practically all classes of organization units.

It also is evident that a classification of organization units by character reveals facts regarding organization that immediately suggest questions meriting careful investigation. For instance, such a classification will bring out for each service, for each department, and for the Government as a whole, just how many units of a given character, such as libraries, chemical laboratories, carpenter shops, etc., exist at Washington and the services to which they are attached. Absolutely essential as this information would seem to be for any intelligent consideration of the problem of administration, it has, up to the present time, never been available. Each service has known what units it had but was not informed, as a rule, regarding those possessed by other services. There thus existed a condition of affairs where the head of a department has not known how many or what carpenter shops, blue-print rooms, photostat rooms, etc., were in his

department at Washington. He may thus permit units to be created or to continue in existence in ignorance of the fact that there are already in existence similar units fully able to handle all work to be done.

With lists of organization units classified, as recommended in this report, such a condition of affairs should no longer exist. What is of immediate importance, however, is the fact that a study of these lists will immediately raise questions concerning the extent to which existing units represent unnecessary duplications of plant, of personnel, or of work. They make it possible to investigate the extent to which economy and increased efficiency can be obtained by centralizing to a greater extent work of a given character, by placing the facilities of one service at the disposition of other services, and by specializing in respect to equipment and work to be done in the several units, etc. Indeed, the information thus furnished renders possible and prepares the way for an intelligent consideration of the problems of the overlapping of functions, the duplication of plant and work, and maintenance of unnecessary equipment that constitute important features in respect to which the present organization of the Government is said to be defective.

CLASSIFICATION OF ORGANIZATION UNITS BY GEOGRAPHICAL LOCATION.

The desirability of, and the advantages to be gained by, a classification of organization units by geographical location has already been considered in the discussion of the purposes served by the preparation of maps. This classification and the maps constitute supporting documents. On the maps themselves it is not feasible to do more than indicate by symbols where stations or other units of organization are located. The classification of organization units by geographical location will show for each city, town, or other point just what stations are being maintained there, and the services and departments to which they belong. By arranging the cities and towns alphabetically the information regarding any given city or town can be instantly had.

INDEXES.

The purposes to be served by the two indexes proposed are evident. While these indexes may not be necessary to the administrator who is familiar with his service, it is apparent that they will be of great value to persons outside the services.

DESCRIPTIVE NOTES.

The last of the elements of a complete report designed to furnish full information regarding organization is that of descriptive notes. This is a feature which can be of little or of great importance, according as it may be decided to rest content with the information furnished by the other features, or to use the latter as a basis for securing full descriptive and critical data regarding not only organization, but character of plant, equipment, duties performed, and methods of work followed throughout the organization. It will thus be possible for the head of any service, bureau, or department desiring to make a thorough study of conditions in his service, to call for a detailed report regarding each unit set up in the outline of organ

ization that will give him all the facts needed to determine whether the separate existence of such unit is necessary, whether such unit is performing the work that it should, and is doing it in the proper way; and what are its needs as regards plant and equipment, personnel, etc. If such descriptive notes are prepared and separate sheets are used for presenting the information obtained regarding the several units, these notes will constitute all the descriptive matter regarding units of organization that is needed to show the organization as a working machine. These notes, moreover, can give information regarding relations between units and regarding special conditions that it is impracticable to bring out either on the outlines or on the charts or maps.

Especially should the effort be made, through these notes, to develop all possible information regarding the necessity for each station or post being maintained in the field. It is probably true that improvement can be made in almost all of the field services of the Government. Investigation can not fail to reveal cases where stations may with advantage be either discontinued, consolidated with other stations, or relocated at more convenient points. In some cases they have been established to meet a real need that existed at the time of their creation, which need, however, may have since passed away on account of changes having taken place in the service, the opening up of new means of communication, the development of new centers of population and industry, etc. In other cases stations have been established without adequate inquiry having been made regarding their necessity, or were established in response to solicitations or representations made to the services by local authorities or other persons. Careful study of the conditions in respect to each station will bring to light not only cases of this character but others where certain classes of work are being performed which can better be performed at other stations or at Washington.

If any service decides to secure such descriptive information regarding the various units composing it, the character of the data that will be desired will, of course, vary according to the character of the unit and service involved. The following draft of a schedule of inquiry, for use in securing information regarding stations being maintained in the field, is, however, suggested as indicating, at least, the general character that might be given to such an inquiry:

SUGGESTED SCHEDULE OF INQUIRY REGARDING FIELD STATIONS.

1. Name of station.

2. Location.

3. Organization symbol or identification number.

4. Whether established by law, executive, or administrative order.

5. If established by law, reference to statute.

6. If established by formal executive or administrative order, reference to such order, and, if possible, copy of order.

7. General description of work of the station and detailed list of duties performed.

8. Description of quarters, plant, and equipment.

9. State whether quarters and plant are owned by Government or rented. 10. If owned, give estimated value of: (1) ground; (2) structures; and (3) equipment.

11. If rented, give annual rental paid and general terms of leases.

12. Total expenditures by or on account of station during fiscal year ending June 30, 1911, itemized in accordance with approved forms of stating expenditures showing the distinction between expenses, capital outlays, etc.