UNIT 22 HIERARCHY

Structure
22.0 Objectives 22.1 Introduction 22.2 Meaning and Definition 22.3 Importanre 22.4 Basic Features 22.5 Level Jumping 22.6 Advantages 22.7 Disadvantages 22,8 Practical Usage 22.9 Let Us Sum Up 22.10 Key Words 22.11 Some Useful Books .22.12 Answers to Check Your Progress Exercises

22.0 OBJECTIVES
After studying this unit, you should be able to: e explain the meaning of the concept of hierarchy % understand the importance of hierarchy % describe the basic features of hierarchy; and e discuss its advantages and disadvantages.

22.1 INTRODUCTION
In this unit, we shall be discussing one of the important principles of organisation ;.e., hierarchy. The hierarchy integrates the variou~~units of an organisation, which are divided on the bases of specialisation, through an interlocking system of superior and subordinate relationship from top to bottom. The meaning, definition, basic features and advantages and disadvantages of hierarchy are discusdd.in this unit.

' 22.2 MEANING AND DEFINITION

Literally, the term 'hierarchy means the rule or control of the higher over the lower. In administration, hierarchy means a graded organisation of several successive steps or levels which are interlinked with each other. It is a method where the etforts of various individuals in an organisation are integrated with each other. In every large-scale organisation, there aie a few who command and there are others wwo are commanded. This leads to the creatior of superior-subordinate relationship through a number of Je~cls of respondibilij reaching from rhetop\down ta the bottom ok an organisatbn. A pyramidical type of structure is built up in an organjsation which Mooney and Reiley call the 'Scalar Process . In organisation, scalar means the grading of duties according to degrees of authority and corresponding responsibility, According to Mooney, this scale or scalar chain is a universal phenomena. Wherever we find an organisation of people related as superior and subordinate, we have the scalar principle.
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'dnrious people have defiixd hierarchy in different ways. L.D. 'VUhitesays: "Hierarchy consists of the universal application of the superior-subordinate relationship through a number of levels of responsibility reaching from the top to the bottom of the structure". In other words, hierarchy means control of the'higher over the lower. In administration, hierarchy means a graded organisation of several successive steps or levels. It is also known'as the 'Scalar Principle7. This is derived from the word 'Scale' which means ladder. Just as there are steps ir, a ladder there are successive levels in hierarchy.

Mooney and Reiley have, therefore, called it as "The Scalar Process". Earl Latham has defined hierarchy as "an ordered structure of inferior and superior beings in an ascending scale. Th,e good chief dwells at the apex from which, with his terrible eye, he can search out the hearts of his lowest subordinates and mould their deed to his command". Ilierarchy means the grouping of units into a large unit for direction and control of activities. It is the method whereby the efforts of various individuals are geared together t o achieve a goal through a system of inter-locking superiorsubordinate relationship from top to bottom. J.D. Millet defined hierarchy as a method whereby efforts of different individuals are geared together" Every organisation has a purpose. In order to achieve that purpose, it divides its jobs into various functions or units. These units are further divided into sub-units until one reaches the base. In an organisation, which is arranged hierarchically, authority descends from the top to the bottom step by stepor level by level. In hierarchy, one has to goup or down step by step. There are several levels of authority and responsibility. Every employee has to obey the orders of his superior and issue orders t o his subordinates. Thus, hierarchy heconles a rneans of communication and a chafn of command among various levels of authority. The principle of hierarchy demands that no intermediate level be skipped over or jumped while dealing with higher or lower levels. This is known as functioning 'through the proper channel'. Hence, all communication should come from the immediate superior o r the immediate subordinate whichever is relevant. Every officer retains the necessary authority with him and delegates the rest to his subordinates. Hierarchy, thus, gives rise to different levels of decision-making. Because of hierarchical set-up the chief executive can issue orders to any level in the organisation and allocate responsibility.

22.3 IMPORTANCE

It is difficult to think of an organisation without hierarchy. Organisation is essentially ' the division of functions among a given number of persons. The distribution of functions and responsibilities is both horizontal and vertical. An organisation structure grows ' both vertically and horizontally. When more and more levels are added in an organisation, it is called vertical growth. But when more functions o r more positions are added without increasing the number of levels, it is called horizontal growth. Vertical distribution creates levels like top management; middle management, supervisors and the level of specific performa~~ce. Strictly speaking, these levels do not denote inherent superiority o r inferiority. However, due to the difference in the nature of responsibility of various levels, the difference in the salary scales and the difference in the qualification andqualities of the personnel working at.various levels, superior subordinate relationship does emerge in the organisation. The need for the scalar system is realised because of two reasons, viz., i) The division of work into its most economic parts with a view t o pursuing the ideal of task specialisation so essential to managerial philosophy. ii) The patterns of integrating the voluminous behaviours and actions of the specialisations into one combined effort.

Check Your Progress 1 Note: i) Use the space below for your answers. ii) Check your answers with those given at the end of the unit.
1 What is the meaning of hierarchy?

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2' Explain the importance of hierarchy as a principle of organisation.

22.4 BASHC FEATURES

The following are some of the important features gf hierarchy: o The entire administrative function is tjivided into tmits,aaad sub-units. o These units are organised in the formof a pyramid owe below the other e Authority is distributed to various levels. e Hierarchical organisation observes the principle of 'through proper channel'. @ All commands and communications should come bhaoagh proper channel. No intermediate level can be ignored. o A person receives orders only f r m one superior officer ahd hot from anybody elSe. This means the principle of unify of command is obsewed. @ Authority and responsibility are adequately combined. Authority without responsibility is dangerous, while responsibility without authority is meaningless. The principle of hierarchy can .be illustrated as follows:

In the above diagram, A is at the apex ofthe organisational pyramid. He is the head of the organisation. B is A's subordinate. C is the immediate subordinate of B and also subofdinate to A. Thus, if we go down the line, F is the immediate subordinate of E and also subordinate to A. Thus orders flow from top to bottom, namely, from A to B, B 1 to C, C to D, D to E and E to Fand communications from bottom to top, namely, F to , E, E to D and sozln, The same is true on the other s ~ dof e the triangle A.K. 1f'Auwants , to ispue an order to F, it has to travel through IP. C, 0, E and if F has to communicate to K, it has to travel through E, D, C, B and A and descend from A to K step by step. F.A.K.in this diagram represents the line of authority linking the entire organisation. '. , The travel of orders from A to F step by step in a descending order, and the flow of communication from F to A in an ascending order is called conimunication "thropgh proper channel".

.This principle also can be explained through the following example: 2 Section Officer J , 2 Superintendent $ 9 Head Clerk 4 Communications Clerk Orders If the Section Officer wants to issue an order to the clerk, it should go through the Superintendent and Head Clerk and then only to the clerk. Similarly a proposal from the clerk to the Section Officer should travel only through the Head Clerk and Superintendent to reach the Section Officer.

22.5 LEVEL JUMPING

In actual practice, short cuts are found to avoid delay without violating the essential principle of hierarchy. There are two ways of doing it. Henry Fayol suggests that a bridge can be thrown across the formal lines of authority of the hierarchy so that subordinate officers in one departmentinay contact their opposite members in other

Concepts in Orgaaisatinn-1

departments directly. F and K in the above diagram may deal with each other directly without following the rule of through proper channel. It is shown in the dotted lines. Before short circuiting the procedure, they should obtain the permission of other superiors t o do so. Or, in order to expedite the work, they can also contact each other without the prior permission of their superiors. But, they should keep their superiors duly informed of what transpired between them. Secondly, one o r more intermediate levels may be jumped to establish direct contact between officers and quicker1 the pace of work. This is known as 'level jumping'. A can deal directly with C if C tells B what was discussed by him with A. A few years back, the government of India started what is known as 'file-jumping experiment' to skip over the intermediate levels in the hierarchy and make the files reach directly to the decisionmaking authority. Hence, with proper confidence and loyalty between superiors and subordinates at each level, the delay of the hierarchical organisation can be very much reduced, if not altogether eliminated. Both the short-cuts discussed above play a significant part in reducing delay. As Urwick rightly observes, "Every organisation must have its scalar chain just as every house must have its drain but it is unnecessary to use this channel frequently as the sole means of communication, as it is unnecessary to pass one's time in the drain".

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Check Your Progress 2 Note: i) Use the space below for your answers. ii) Check your answers with those given at the end of the unit. 1 What are the basic features of hierarchy?

2 What is IeveI jumping?

22.6 ADVANTAGES

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The following are some of the advantages of application of hierarchical principle in organisation:

1 ~ v elarge-scale r ~ organisationshould have a unity of purpose, which can be achieved

only through hierarchical system.
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2 Hierarchy integrates various units of an organisation into an unified whole. As observed by M.P. Sharma, "It is an instrument of organisatiorlal integration and coherence. It is to the organisational structure what mortar or cement is to building structure".

3 It serves as a channel of communication, both upwards and downwards in an

Hierarchy
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organisation. It makes clear to every official as to with whom he is to deal with.

4 It enables us to fix responsibility at each level and at each post in the organisation.

Every employee knows what his position and responsibility are in the organisation and to whom he is accountable.
5 The scale of 'throgh proper channel' created by the, principle of hierarchy ensures strict adherence to procedure and avoids short-circuiting or ignoring of the . intermediate links.

6 Hierarchy lessens, the burden of work at the highest level and decentralises decisionmaking. It establishes a number of subordinate levels below the top executive. Each subordinate level acts as a centre of decision for specified matters delegated to it. Every employee of.the organisation is trained to take de'cisions and guide his subordinates. A t the same time, it relieves the chief executive from the burden of work and promotes a sense of belonging among the subordinates.
7 It simplifies the procedure of movement of files because of strict adherence tothe rule of 'through proper channel' and makes it easy to know where a particular file is.

The following are some of the disadvantages of application of principle of hierarchy in organisation: 1 In the hierarchical system, directions flow from above to down below. Those down below are expected to carry out mechanically the instructions of their superiors without any initiative and drive. 2 It brings about rigidity in administrative organisation and is not proper for the development of dynamic human relationships among its members.
3 The success or failure of this system vcry much depends on the personal likings of the head of the organisation. If he can bring life and personal touch in the organisation, it is bound to be a success. Othenvisc, it is bound to be a failure.

i' 4 The most serious disadvantage of the hierarchical organisation is that it causes inordinate delay in the disposal of work. In the above diagram, we saw how according to the strict rule of through proper channel, a communication from F to K must travel through E, D, C , B, A , G, H, I, K and b&k again, in all 20 steps. This may mean inordinate delay.

22.8 PRACTICAL USAGE

It is necessary to examine whether authority is exercised through the principle of hierarchy or not in day-to-day matters of administration. According to some critics like Earl Latham, it is wrong to think that superior officers exercise authority over the subordinates indiscriminately. It may be said that subordinates obey the orders of their superiors because the latter possesssuperior knowledge due to their rich experience. Sometimes, it is true that.the subordinates possess more information due to their handling of the problems than their superiors. It is exactly because of this reason, the decisions of the subordinates would be accepted by their superiors. It may be stated that in practice an organisation does not work only on the formal principle of hierarchy, As you have already studied in Unit 20, informal relationships exist in each and every organisation. In the words of Nigro: "An organisation is more than its structure and its official relationships as spelled out in its organisation charts and manuals. .... .Organisation is also a social system in which its members develop patterns of behaviour which ;~ctually may deviate from official directives. This is called the informal organisation and an appreciation of its role is indispensable to the undcrstanding of any agency".

Concepts in ~rganisntian-I

Check Your Progress 3 Note: i) Use the space below for your answers. ii) Check your answers with those given at the end of the unit.
1 What are the advantages of hierarchy?

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2 What are the disadvantages of hierarchy?

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3 Can you suggest some measures to overcome the disadvantages of hierarchy?

22.9 LET USSUM UP

Hierarchy is a uni~ersally accepted principle of organisation. It emphasises the need for organic relationship between superiors and subordinates. The rule of 'through propcr channel' is the essence of hierarchy. It is apyramidical type of organisation with an apex at the top and base at the bottom'and in between there are several successive levels which are both vertical and horizontal. In other words, it is a ladder of authority with various steps. Communications and orders should go up or come down from each step. Any violation would result in confusion and distrust. As a principle of organisation, if serves as a channel of communication both upwards and downwards, ensures adherence to procedures, decentralises decision-making and lessens the burden of the chief executive. Delay is the most serious disadvantage of this principle. But, two short-cdts have been devised to reduce delay viz. 'throwing of bridges across the formal lines of . authority and 'level jumping' in urgent matters. The advantages of hierarchy overweigh the disadvantages associated with it. By arid large, organisations do not function only on formal lines. Informal relationships exist in each and every organisation. The superiors and the subordinates work together in an atmosphere of harmony and comradeship because of informal relationship between them and not because of only formal ties. Hierarchy is a built-in device to achieve consensus and realise the goals for which an organisation is established.

22.10 KEY WORDS

Adherence: Sticking to Communication: Flow of information upwards, downwards and sideways in an organisation Consensus: General agreement Expedite: To facilitate speed up the progress

22A 1 SOME USEFUL BOOKS

Avasthi A and Maheshwari. S. R.. 1985. PublicAdministra~i6rr (14th rev. Ed); Lakshrni Narain Agarwal : Agra. Bhattacharyz. Mohit. 1974. Public Administration; The World Press Private Ltd: Calcutta. Dimock, Marshal Edward and Dimock, Gladys Ogden, 1975. Public Administration (Third Ed); Oxford & IBH Publishing Co: New Delhi. Gulick Luther & Urwick L. 1937. Papers on thescience ofAdministration (Eds); Public Administration Service: New York. Mooney J.D., 1957. Principles of Organisation; Harper: New York. Mooney J.D., 1970. The Scalar Principle in William Lexton ( E d ) Organisation Theories; Charles Marrel Co. Columbus. Ohio, Simon, Herbeft, 1957. Administrative Behaviour: A study of ~ e c i s i o n Making Process in Administrative drganisation; The Free Press: New York.
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Sharma, M.P., 1983. Public Administration in Theory & Practice 14th ed; Kitab Mahal: Allahabad.

Tyagi, A . R . ,1981. Public Administration: Principles & Practice (6th rev. ed), Atma Ram & Sons: Delhi.

22.12 ANSWERS TO CHECK YOUR PROGRESS

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EXERCISES
Check Your Progress 1 1 See Sec. 22.2 and 22.3 2 See Sec. 22.2 Check Your Progress 2 1 See Sec. 22.4 2 See Sec. 22.5 Check Your Progress 3 1 See Sec. 22.6 2 See Sec. 22.7 3 See Sec. 22,8