THE CONCEPT OF BUREAUCRACY IN PUBLIC LIBRARY ADMINISTRATION: A STUDY OF SELECTED ORGANIZATIONAL VARIABLES IN TWO DIFFERENT LIBRARY ADMINISTRATIVE SETTINGS

The purpose of this research was to provide some empirical answer to the question: If public libraries, instead of being relatively free from politics as they are now, were to be moved into the political arena, would the role of the professional staff change markedly? More specifically this research compared two types of organizational settings for public libraries in order to determine which of the two settings, board administration or municipal integration, provides for more professional input into the decision-making process. The variables studied to identify differences between the two settings were levels of centralization, complexity, and professional attitude. The research used the theoretical framework of Hage and Aiken and that of Hall, to investigate relationships between these three variables within each setting. Centralization was measured in terms of participation in decision-making and hierarchy of authority; the variable complexity included three measures: occupational specialty, professional activities, and professional training. Professional attitude was measured through the use of the Hall-Snizek Professionalism Inventory.

Survey questionnaires from the professional staff of nine board administered public libraries in the province of Ontario and nine municipally integrated public libraries in the United States were analyzed.

Results showed that the public libraries administered by boards of trustees did not differ significantly from the municipally integrated ones in levels of centralization and levels of complexity. The professional attitude variable differed significantly in only one measure--belief in service to the public. The librarians working in municipally integrated settings demonstrated a stronger belief in public service than their colleagues working in board administered settings (p > 0.01). Based on organizational theory it was hypothesized that complexity and professional attitude would be positively related while each would negatively relate to centralization. It was found that the public libraries surveyed do not seem to follow the predictions of organizational theory since the results showed very few significant relationships.

This study of the professional input into the decision-making process showed that in both public library administrative settings surveyed, professionals share a fairly similar level of participation, and do not perceive either setting as being highly centralized.