ABSTRACT
Some of the problems of internal management within public organizations have already been discussed. There are also numerous problems with communication that inhibit the flow of information upward and internal rigidities that block the smooth flow of authority downward.69 The sixth criterion for government is directly concerned with the translation of decisions made at the top of the organization into effective actions in the field. As has been noted, the ‘‘real’’ policy of a government is the policy as implemented, rather than the statements of legislatures, political executives and others. A number of studies have documented the variety of pressures on field workers that may limit their ability to take the program passed by the legislature and put it into effect as planned.70 This concern with lower echelon administrators complying with the law as written may appear to conflict with our earlier concern about flexibility and the exercise of discretion. However, that concern with ‘‘red tape’’ focussed on compliance with the procedures of the organization rather than with the substance of the policy.
