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University of Delhi , University of Delhi
Administrative Management (Gullick, Urwick and Fayol)
Table of Contents
1.1 Introduction
1.3.1 Departmentalism
1.6 Conclusion
1.7 Glossary
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University of Delhi , University of Delhi
Administrative Management (Gullick, Urwick and Fayol)
1.1 Introduction
In public administration Classical Theory is the name given by Herbert Simon to the
ideas and contributions of early twentieth century administrative practioners and theorist
such as Henri Fayol, Luther Gulick, Lyndall, Urwick , J.D Mooney and A.C Reiley. All
these writers believed in the existence of certain universal administrative principles the
application of which could make organization function more efficiently. The Classical
theory is known as the Administrative Management Theory and Formal Organization
Theory (S.P Naidu, 1996,p.69). Henry Fayol who as the advocator of the managerial
function by advocating the principles of planning, command, coordination to
organization. Fayol approaches to management contradict that of Taylor approach of
scientific management. Fayol approach was broader and more systematic while classical
thinkers like Gulick and Urwick , Mooney and Reiley viewed an organization as a closed
system. They elaborated many principles of authority, hierarchy, division of labour to
encourage cooperation and coordination in an organization. They wanted to minimize
conflict in the working of organization.
Thinker like Taylor focussed his attention on the management by making it work like a
shop floor management while Gulick and Urwick work is limited to the study of
organisation as a whole. Taylor theory was called scientific management that focus his
attention on bringing mental revolution through increasing the productivity of the
workers. Taylor tried to improve efficiency and working standards and cooperation
between managers and workers. The later writers like Gulick and Urwick give important
to such principles or they were some rules to help managers manage their organisation
in the best possible manner and increase efficiency and economy. Hence Administrative
management is the process of managing information through people. This usually
involves performing the storage and distribution of information to those within an
organisation
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University of Delhi , University of Delhi
Administrative Management (Gullick, Urwick and Fayol)
F. Taylor
Some of the few administrative management theorist who have contributed to the study
and field of public administration are Fayol, Urwick and Gulick . These thinkers share
some basic similarities with each other. First is that all of them gave importance to the
structure of organisation. They believed that it is only through structure functions can be
performed. There is a structure in organisation that assigns tasks to its workers and
employees. They were of the opinion that organisation will be effective only when there
is a well formulated structure. They have elaborated some of the principles of structure
and its importance to the working of management processes. Secondly, they believed
that these principles has universal claim based on the experiences of industrial
organisation. They think that these principles should be applied universally for achieving
better efficiency in management processes. Thirdly they believed that their ideas are not
based about utopian notion, they are based on practical and real experience of industrial
organisation. These ideas are more factual and empirical in nature. . They believed that
application of these principles are important for any organisation that why they proposed
for the idea of science of administration that is based on experience of organisation
(Bhattacharya, 1981) .They believed that any kind of conflict hampers the efficiency of
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University of Delhi , University of Delhi
Administrative Management (Gullick, Urwick and Fayol)
the working of organisation and therefore it is important that these conflicts should be
minimised. They stressed on different kinds of rules and procedures, hierarchy to be
followed so that organization can perform in a better way. This approach believed that
for the efficiency of organization it is important that a kind of cooperation and harmony
is maintained in the organization so that it leads to better performance and result. This
kind of theoretical presumption supports the tradition notion of conflict theory. We will
try to understand the important contributors to the Administrative Management
approach are:
Henri Fayol (Istanbul, 29 July 1841 Paris, 19 November 1925). He was a French
mining engineer and has developed theory of business administration. He developed his
theory that was very different from scientific management theory.
Henri Fayol propounded his theory on the basis of his own experience as a French mining
engineer. He felt that there are certain important management principles that should be
applied to the public organisation. He was a rational person who believed that division of
labour can contribute to the efficiency of management. He believed that individuals
should be associated with organisation. The function of the management was to plan,
organize, command, coordinate and control and, at the same time, it had to be
competent enough to elicit loyalty and obedience from the workers. His management
principles were imbibed from his experience of French army. The need for order,
discipline and rationality was emphasized, Fayol spoke of individuals as only a cog in a
big machine, He stressed the importance of an organisation chart to clarify the line of
authority, communication and to demarcate responsibilities (Organisation: Insights,
1992, p.34). Based on his experience he wrote a book General and Industrial
Management (1916). His papers on The Theory of Administration in the State (1923),
is considered as a major contribution to the theory of public administration.
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University of Delhi , University of Delhi
Administrative Management (Gullick, Urwick and Fayol)
Although he has listed some of the important principles of management approach, but
he has tried to describe the activities that is more of the description of the role played by
managers in an organisation. There are fourteen principles that are enlisted by the Fayol
based on his own experience as an administrator of public administration. They are
(Stewart Clegg and David Dunkerley, 1980, p.99):
1. Division of Work: There is a need to divide work among groups and individual so
that task is completed in a prescribed time. He thought that this kind of technique
can utilise the skills of individual and best use of human resources is possible.
4. Unity of Command: It is a norm where there is only one manager from whom
workers receive their orders.
12. Stability of Tenure of Personnel: It is imperative that employees who are expert
and have command over the work processes should be given priority.
13. Initiative: Management should take steps that can ensure worker satisfaction and
motivates them to work for the betterment of the organisation.
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Administrative Management (Gullick, Urwick and Fayol)
He has listed many principles that are relevant for performing managerial activity . They
are limited in nature but they provide basis for the development of managerial principles
for the other thinkers.
Mooney and Reiley stressed upon some of the basic principle of organisation. According
to them there are three basic functions first being the goals need to be set, then there
will be a course of action to achieve the goal and finally the decision will be taken for the
respective organisation. They argued that it becomes imperative that management must
be aware of function and discharge them accordingly. Hence they have played an
important role in the development of management theory of administration.
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University of Delhi , University of Delhi
Administrative Management (Gullick, Urwick and Fayol)
Luther Gulick
Luther Gulick was born in Osaka, Japan in the year 1892 and was educated in
Columbia University. He worked as administrator of New York City during 1954-56. His
important writings are Administrative Reflection from World War-II, and Papers on the
Science of Administration (1937), (jointly edited by Urwick) Modern Management for
the City of New York.
Source:https://en.wikipedia.org/wiki/Luther_Gulick_(social_scientist),
https://en.wikipedia.org/wiki/Lyndall_Urwick , accessed on 2.1.16 at 2:30 pm
Gulick and Urwick was great systematiser of the classical approach to administration.
Gulick was a well known American administrative expert. Urwick was a management
consultant. Both were involved in the problems of American public administration. They
wrote many reports of administrative reform and efficiency. They were influence by
Fayol and Taylor. Both Gulick and Urwick devoted their attention to the principles of
administration. Division of work, coordination, delegation of authority, authority and
responsibility are some of the important principles that are given by them. For Gulick,
division of work and coordination is important. He believed that principles of
administration is guided by efficiency .He examined the concept of departmentalism ,
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University of Delhi , University of Delhi
Administrative Management (Gullick, Urwick and Fayol)
Lyndall Urwick
Lyndall Urwick was born in Briton in 1891. He was educated at Oxford University.
Some of his important publications were A Management of Tomorrow, The Making of
Science of Management, The Elements of Administration, (1943). He also edited paper
along with Luther Gulick Papers on Science of Administration (1937).
These two writers had a wide experience in working in industrial organisation. They were
associated with the formal organisation and contributed to the development of classical
theory that is knows as administrative management theory. They believed that if the
experiences of administrators are taken into account then there is a possibility of the
development of a science of administration. Hence they argued that there is a need to
facilitate the introduction of mass production techniques. They wanted to ensure some
level of homogeneity in the work process. It was important to combine skills and
production to derive better result and output. Based on this approach and their
experience they evolved certain principles of organisation. The principles enunciated by
Gulick are called POSDCORB(S.P Naidu, 1996,p.71) .
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Administrative Management (Gullick, Urwick and Fayol)
(c) Staffing: It is all about training the staff to do the work in a professional manner.
(f) Reporting: Keeping employer updated of the work done by employee in the
organisation through regular reports and research.
(g) Budgeting: Maintenance of funds required for planning and coordinating tasks of
organisation
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University of Delhi , University of Delhi
Administrative Management (Gullick, Urwick and Fayol)
Hence, it can be said that Urwick ideas has become popular in adopting the
management techniques of the institution. He emphasised on the purpose and
structure of organisation. If we compare Urwick list with that of Fayol principles of
management. Urwick has paid less attention to the issues such as basic pay and
morale. Its emphasis has been more towards the mechanism of an organisation. In
the next section, we need to understand the general principles of organisation.
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Administrative Management (Gullick, Urwick and Fayol)
Management principles are important for an organization. These are some guidelines
that help the administrators to follow and work according to the norms and regulation of
an organization. Based on the theoretical framework of some of the scholars, the general
principles of administration are:
1.3.1 Departmentalism
Source: http://catalog.flatworldknowledge.com/bookhub/5?e=carpenter-ch07_s01,
assessed on 1.1.16 at 2:30pm.
This principle is based on the belief that one director or executive should head
organisations. Urwick warned against the use of committees for purposes
of administration. He thought, boards and commissions are turned out to be failures.
They are inevitably slow, cumbersome wasteful and ineffective.
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Administrative Management (Gullick, Urwick and Fayol)
organisation..
They do not cooperate with other agencies. Well-managed administrative unit in the
government are always headed by single administrator (.Bertram Gross, 1964,p.145).
Source: http://008abhishekghorpadeim20nitiepomcourse.blogspot.in/2013/07/fayols-
14-principles-of-management.html, assessed on 2.1.16 at 4:30pm.
Source:http://s656.photobucket.com/user/PublicPics21/media/christian-unity-
cartoon2.jpg.html, assessed on 1.1.2016 at 3:20 pm.
The principle of unity of command suggests that for the effective functioning
of organisations the subordinates in the organisation should receive command from one
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Administrative Management (Gullick, Urwick and Fayol)
superior only. Gulick agrees with Fayol who said, a man cannot serve two masters.
Although rigid adherence to this principle may have its absurdities, these are
unimportant in comparison with the certainty of confusion, inefficiency and
irresponsibility, which arise from the violation of the principle. However, he has provided
certain exceptions to this principle in the case of field office specialist. For example it
may be inevitable for an engineer in a field office working under administrative
supervision of the field office manager and under technical supervision of the chief
engineer in the central office. In such situation the Gulick suggest the system of
integrated dual supervision.(Betram Gross, 1964,p.145).If there are many superiors
giving order to the same employee , he will not be able to decide as to which order is to
be given priority, He thus finds himself in confused state of mind. This kind of situation
affects the efficiency of subordinates. For example if there are three subordinates that
have only one manager and they all followed the orders and instruction of only one
manager . Hence in this case principle of the unity of command is followed and hence
fore it is the right approach.
This kind of work is assigned to group of workers so that efficiency can be maintained in
the institution. It is a medium through which burden on one labour can be minimised
leading to the equal division of work so that different tasks can be performed by
organisation.
Source: http://study.com/academy/lesson/division-of-work-in-management-definition-
lesson-quiz.html, assessed on 1.1.16 at 9:30 pm.
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Administrative Management (Gullick, Urwick and Fayol)
organisation, results are obtained when the work is divided. He was of the opinion that
every individual differ in their skills and efficiency as a result need arises to divide the
tasks between individuals. Gulick believes that there are many limitations to the division
of work such as technology or physical limitation. The work cant be divided if it is too
less. Work can be divided only when there are people available with skills to perform it.
Source: http://mbafinance.svtuition.org/2009/06/14-principles-of-management.html,
assessed on 2.1.16 at 4:30 pm.
The principle of staff emphasises that in the performance of organisational activities the
executive needs the help of large number of officials. This staff assistance to the
executive deserves special attention. The staff is of two categories, (1) special staff and
(2) general staff. The chief executive requires the help of the specialist as well as
general staff. While general staff assist the chief executive in knowing, thinking and
planning functions. The special staffs help the executive in carrying out the basic
operations of the organisation. Drawing upon the military experience with line and staff
arrangements, Gulick dealt with the problems regarding relation between general and
special staff. As in military organisation, general staff may assist their supervisors in
their central task of command, control and coordination. They should help to coordinate
the work of specialist without themselves taking any specialised functions n doing so
they act not on their own but as representative of their superior and within the confines
of decision made by him. Thereby they relieve the top executive from the burden of day-
to-day administration. They free him to concentrate upon the most important matters
Urwick also recognized that in a civilized life, assistant who act on behalf of top
executive will often be regarded as encroaching upon the authority of senior official.
To overcome this problem Gulick suggest that the assistant to be men with a passion
for anonymity (Betram Gross, 1964, p. 147).
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Administrative Management (Gullick, Urwick and Fayol)
Delegation is an art of higher order and a universally accepted principle. It relives the
manager from the heavy load of work. The principle of delegation emphasizes on the
need for administrators to keep the requisite authority with them to act and delegate the
rest of it to their subordinates. In the absence of such delegation the subordinates
cannot discharge their responsibility. Urwick maintains that lack of courage to delegate
Properly and knowledge of how to do it is one of the most general causes of failure in
organisation.
(Betram Gross, 1964, p.147)
Value Addition - Know More about it
Delegation does not always work the same way as the manager may expect. To make
delegation effective , it should be based on rules and regulation of an organisation
There are many benefits of the delegation in the working of organisation. It leads to the
reduction in workload, better decisions, speedy form of decision making, it will train
subordinates leading to a healthy relationship that leads to the acceptance of
responsibility by the subordinates and lastly it results in the formation of a formal
structure of an organisation.
Source: http://mbafinance.svtuition.org/2009/06/14-principles-of-management.html,
assessed on 1.1.16 at 3:30pm.
This principle is important for the working of organisation. This principle stands on the
notion that authority and responsibility are two sides of one coin. If higher authorities
assigns some tasks to the subordinate then they are also responsible to the delegates
the responsibility for doing work on that status .This will make working environment
more responsible and accountable in the process of management.
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Administrative Management (Gullick, Urwick and Fayol)
Source: http://mbafinance.svtuition.org/2009/06/14-principles-of-management.html,
assessed on 2.1.16 at 3:40pm
This principle means strength in unity. Henri Fayol was the supporter of unity because he
knew its importance and value. All employees should understand and create unity
among them by minimising conflict in an organisation.
Hierarchy indicates the control of the higher over the lower. In the administrative
structure, hierarchy means a graded organisation of several successive levels or steps.
Hierarchy is also known as scalar principle. Hierarchy places individual in organisation in
an order. Hierarchy facilitates the allocation of responsibilities to the different levels of
organisation. It also facilitates easy flow of work in the organisation and also easy
coordination and control. It fixes responsibilities of individuals and makes it clear who is
accountable to whom (Bhattacharya, 1981). Hence Hierarchy consist in the universal
application of the superior-subordinate relationship through a number of levels of
responsibility reaching from top to the bottom of the structure. Fayol held the view that
an employee should not approach directly his superiors superior. Mooney and Reiley
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Administrative Management (Gullick, Urwick and Fayol)
calls it the scalar process. These principles have come into lot of criticism. It has been
blamed for creating superior-subordinate relationship in the hierarchy. Procedure
through proper channel, red tapism and delay in disposal of cases are other criticism
levelled against it. However, hierarchy plays a useful role in an organisation (Rumki
Basu, 1994,p 185).
Span of Control is number of subordinates or the units of work that an administrator can
personally direct. In the words of Dimock, The span of control is the number and range
of direct, habitual communities contacts between the chief executive of an enterprise
and his principal fellow-officers. The exact length of span will depend on many variable
factors like the personality of the supervisor, the diversification of the functions of the
organisation, the age of organisation and environments of the organisation (Raj Kumar
Pruthi,2005, pp.33-43). In other words an officer can directly supervise a limited number
of person so that flexibility is ensured in an organisation.
This principle emphasises that a supervisor cannot control more than a certain number
of subordinates. In this regard Urwick felt that no supervisor can supervise directly the
work of more than five, or at the most six subordinates whose work interlocks.(Betram
Gross, 1964,p.148). This kind of idea has been important in the recent years. With the
emergence of information technology , there are some noticed changes in the working of
public administration. This principle have been under revision since the emergence of
specialist. For example in a research organisation there are many specialist who are
recognised authorities. In such organisation there is less of commanding but more of
discussion and consultation.
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University of Delhi , University of Delhi
Administrative Management (Gullick, Urwick and Fayol)
Critics said that Gulick and Urwick were unable to propound the scientific method while
elaborating their principles of administration. All these principles were based upon their
personal experiences and were not scientifically proven facts. For Gulick, organizational
efficiency was important while Waldo negates this concept and says that its
administration is not about efficiency or inefficiency. It is not necessary that efficiency of
one purpose leads to inefficiency of other purpose. Despite these limitation Gulick
initiated new ideas of managers and said that administration can be distinguish from the
management.
This approach gives importance to formal structure and negates the concept of human
needs in an organization. It did not give attention to the human behaviour. This theory is
more like a closed system that is not externally impacted by any human interactions.
Herbert Simon believed that it is a narrow approach that lacks any kind of human
element in organization. Some of the principles such as unity of command, hierarchy,
and specialization are not based on any scientific validation. There is always a
contradictory principle in relation to its basic principles of efficiency and specialization.
Even in performing the staff function there is contradiction between generalist and
technocrats. Simon felt that these principles describe administrative situation. He
believed that these principles cannot be applied universally. This theory is pro
management and gives more importance to efficiency and productivity of organization
without considering the human psychological and mental needs. According to Prof Waldo
this approach lacks any kind of scientific facts and validation. According to
V.Subramanyam these are only general proposition that are not associated with any
kind of theoretical understanding of subject and it is biased towards management
approach that only deals with the problems faced by management in organisation.
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University of Delhi , University of Delhi
Administrative Management (Gullick, Urwick and Fayol)
Despite the above mentioned criticism, this approach has been important for the practice
of public administration in U.S.A. Under the influence of this approach there were many
reformation in the administrative system of U.S.A. Although this theory has great value
in day to day activities of life. The principles advocated by Gullick and Urwick often
provides an impetus to the role and functions of managers. Even in present times, the
principles like division of work and coordination still exists in an organisation. There is a
need for organisation to function according to the rules and norms. All these principles
have led to the development of the later theories of public administration. There is a
need to bring reformation in these principles to make them relevant in present times.
1.6 Conclusion
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University of Delhi , University of Delhi
Administrative Management (Gullick, Urwick and Fayol)
1.7 Glossary
Decision making: The process of choosing the best course of action from among the
alternative course of action.
Equity: A principle given by Henri Fayol ,Treating all employee with justice without bias.
Initiative: Ability to think and execute ideas. Principle given by Henri Fayol.
Span of Control: It is a principle which emphasis that a superior cannot control more
thana certain number of subordinates.
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Administrative Management (Gullick, Urwick and Fayol)
5. Do you think that the principles of organisations are still relevant in the context of
modern day organisations? Discus
Practice
A B
4. Which among them is not the principle of organization propounded by Henri Fayol?
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Administrative Management (Gullick, Urwick and Fayol)
8. What are the basic criterion through which department can be organized?
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University of Delhi , University of Delhi
Administrative Management (Gullick, Urwick and Fayol)
Answers
2. A
3. C
4. D
5. B
6. D
7. A
8. D
9. A
10. A
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Basu, Rumki (1994) Public Administration: Concept and Theories, Sterling Publisher,
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Bhattacharya, Mohit (1981) Public Administration : Structure, Process and Behaviour , The
World Press Pvt. Ltd., Kolkata.
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Administrative Management (Gullick, Urwick and Fayol)
Naidu, S.P (1996) Public Administration: Concepts and Theories, New Age publisher:
New Delhi.
Pugh, D.S (1985) Organisation Theory: Selected Readings (Ed), Penguin Books, Middlesex,
England.
Purthi, Raj Kumar (2005) Paradigms of Public Administration and Civil services,
Discovery publishing: New Delhi.
Singh, Vikram (2012) Public Administration Dictionary, Tata McGraw Hill, New Delhi.
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