B.A. 5th Sem, Unit: IV- (Paper-2, Public Administration) Political Science, KU- NEP based syllabus

B. A. Vth Semester, 

Unit: IV- Structure of Organization: Line, Staff and Auxiliary Agencies,  Department, Public Corporation

By 

Dr. Farzeen Bano

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Line and Staff Agencies

Introduction

An organization operates through a variety of functions, which can be broadly classified into two main types of activities are carried out:  

1. Primary or Functional Activities: Activities performed to achieve the main objectives of the organization.  

2. Institutional or Housekeeping Activities: Activities not directly related to the main objectives but essential for the organization’s functioning, such as management and support services.

Based on these activities, organizations are divided into two arrangements:  

1. Line Agency

2. Staff Agency

These concepts are fundamental to understanding the structure and operation of any organization. 

Concept of Line and Staff Agencies

The concept of Line and Staff Agencies originates from military administration.  

• Line Agency: Includes units engaged in frontline action, directly responsible for achieving organizational objectives. Line units are directly involved in warfare, leading troops on the battlefield. 
• Staff Agency: Supports the frontline by providing resources, supplies, and expertise, without directly engaging in the main function. 

This concept has been adopted in administrative structures to delineate roles and responsibilities.

Line Agency (Primary Agency)

A Line Agency is the direct authority responsible for executing primary functions and achieving the organization’s goals. It establishes a hierarchical relationship from top-level management to subordinates. This agency is actively involved in decision-making and policy implementation.

Definition

- According to L.D. White, "Line is concerned with the primary objectives for which governance is established."  

- John Millet defines it as "that subordinate division which is engaged in fulfilling the responsibilities of the organization."  

- Prof. Lepawsky describes it as "a mathematical subdivision of an organization, with authority and responsibility lines extending from the top to the bottom like veins in a leaf."

Key Features

1. Direct Authority: Commands subordinates and establishes a clear chain of command.
2. Primary Responsibility: Focused on achieving the primary objectives of the organization.
3. Policy Formation: Plays a significant role in formulating policies and programs.

Functions of Line Agencies

1. Formulate policies and goals to achieve primary objectives.  

2. Hold the authority to make decisions, issue orders, and exercise control.  

3. Directly execute policies and programs.  

4. Maintain a clear hierarchical structure for effective communication and accountability.  

Types of Line Agencies

Modern governments use three main types of Line Agencies to fulfill their administrative objectives and deliver services to the public. These agencies directly contribute to achieving the primary goals of governance.  

1. Departments: Governmental units performing specific functions.  

2. Independent Regulatory Commissions: Bodies regulating specific sectors independently.  

3. Public Corporations: Entities managing public services or enterprises.

1. Departments

Departments are the primary units of government administration responsible for executing policies, delivering services, and maintaining law and order. These are structured hierarchically and operate under the direct control of ministers or heads of departments.  

Functions

•  Implement government policies.  
•  Manage core administrative functions.  
•  Ensure coordination between different levels of government.

Example 

• Ministry of Home Affairs (India): Handles internal security, disaster management, and law enforcement.  
• Ministry of Education (India): Oversees the development and implementation of educational policies and programs.   
• Department of Health and Human Services (USA): Manages public health services and welfare programs.  

2. Independent Regulatory Commission 

Independent Regulatory Commissions are specialized agencies established to regulate and oversee specific sectors. They function independently from direct political influence and ensure fair practices and compliance with regulations.  

Functions

• Formulate and enforce regulations for specific sectors.
• Protect public interest by ensuring transparency and accountability.  
• Resolve disputes within the sector they regulate.

Examples

• Securities and Exchange Board of India (SEBI): Regulates the securities market to protect investors and promote fair practices. 
• Federal Communications Commission (FCC, USA): Oversees communication channels such as radio, television, and the internet.   
• Electricity Regulatory Commission (India): Regulates tariffs, power distribution, and consumer rights in the electricity sector.

3. Public Corporations

 

Public Corporations are government-owned entities established to provide services or manage public resources. They operate with greater autonomy than traditional government departments and are often modeled after private enterprises to ensure efficiency.  

Functions  

• Deliver essential public services, often in utilities or transportation.   
• Operate on a commercial basis while balancing social responsibilities.   
• Generate revenue while focusing on public welfare.

Examples

• Indian Railways: Manages and operates the railway network in India, providing transportation services to millions.
•  Life Insurance Corporation of India (LIC): Offers life insurance policies and investment services.  
• BBC (British Broadcasting Corporation, UK): Provides public broadcasting services funded by the government.  

Conclusion

Each type of Line Agency plays a distinct and critical role in modern governance.  

- Departments focus on direct administration and policy execution.  

- Independent Regulatory Commissions ensure fair practices and sectoral compliance.  

- Public Corporations manage services and enterprises efficiently while balancing public welfare.  

Together, they ensure that governments can achieve their objectives efficiently, regulate essential sectors, and deliver public services effectively.

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Staff Agency (Support Agency)

A Staff Agency provides assistance, advice, and specialized expertise to Line Agencies. It is not directly involved in operational activities but supports and facilitates the achievement of organizational goals.

Definition 

- According to Charlesworth, "Staff is an executive officer specialized in research, testing, and inspection, preparing proposals and plans for the chief executive’s consideration."  

- L.D. White states, "Staff is an agency that provides advice to high-level officers without functional responsibility."

Key Features

1. Advisory Role: Focuses on providing recommendations and plans to the executives.
2. Specialized Knowledge: Includes experts in technical, managerial, or operational areas.
3. Support Functions: Responsible for research, planning, and housekeeping activities.

Functions of Staff Agencies

1. Gather and analyze information.  

2. Provide expert advice to line agencies and executives.  

3. Conduct research and planning.  

4. Offer training and manage auxiliary services.  

5. Establish contact with external organizations and improve coordination.

Types of Staff Agencies 

1. General Staff: Provides advice on general administration, such as the Prime Minister’s Office and Cabinet Secretariat in India.  

2. Technical Staff: Offers specialized advice requiring expertise, like doctors, engineers, and lawyers.  

3. Auxiliary Staff: Performs essential services like accounting and audits, such as the Union Public Service Commission and Central Bureau of Investigation.

Staff Agencies in India

1. Prime Minister’s Office (PMO): Provides secretarial support and advice to the Prime Minister.  

2. Cabinet Secretariat: Coordinates Cabinet meetings and records decisions.  

3. Planning Commission: Previously responsible for policy formulation based on resource assessment.  

4. Union Public Service Commission (UPSC): Advises on recruitment, promotion, and personnel management.  

5. Central Bureau of Investigation (CBI): Conducts investigations and provides intelligence.  

6. University Grants Commission (UGC): Oversees higher education policies and funding.

Comparison of Line and Staff Agencies

•  Nature of Work: Line agencies fulfill primary responsibilities; staff agencies provide support services.   

• Decision-Making Authority: Line agencies make and implement decisions; staff agencies only advise.  

• Direct Involvement: Line agencies are directly involved in organizational objectives; staff agencies function indirectly.   

• Control: Line agencies have control over operations; staff agencies support but do not control operations.    

• Responsibility: Line agencies are responsible for achieving goals; staff agencies assist in the process.    

• Focus: Line agencies act as the "ends" of the organization; staff agencies serve as the "means."

Interrelationship of Line and Staff Agencies

Despite differences, Line and Staff Agencies are interdependent. Staff agencies provide essential support to line agencies by offering expertise, resources, and strategic planning. Herbert Simon noted that the belief that "staff only advises and does not issue orders" is a misconception. Both agencies must work together for an efficient administration.  

In conclusion, Line and Staff Agencies are complementary components of organizational structure, ensuring both execution and support functions are effectively managed.