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Home > About USPS & News > Forms & Publications > Postal Periodicals and Publications > Manuals > Employee and Labor Relations Manual - Issue 18 > 1 Organizational Structures > 140 Organizational Change Analysis
140 Organizational Change Analysis
141 Analysis of Work Requirements
141.1 Nature of Functions
The analysis of the nature of functions involves the separation of the total
work of the organization into functional components. Each functional
component should represent an aggregate of duties that logically fall within
the scope of a single position description (i.e., involve like kinds of skills,
knowledge, and abilities).
The attempt at this stage is not to establish detailed position requirements,
but rather to focus on the manner in which work can be organizationally
segmented and subsequently assigned to major functional reporting or
control points within the unit.
141.2 Volume of Work
Work volume can be translated into the number of employees required to
supervise processing of the work by using conversion factors appropriate for
the activity involved. Whenever possible, volume is expressed quantitatively
and derived from historical data coupled with economic forecasts and other
relevant projections.
Work volume is analyzed for its impact on staffing requirements in supporting
functions, as well as on the principal areas of operating activity.
141.3 Performance Standards
The required supervisory and professional resources of an organization are,
in some measure, contingent upon the performance standards the unit is
expected to meet. Performance standards may be explicitly mandated on a
servicewide basis, for example, 95 percent overnight delivery of local
originating mail. Often, however, the performance standards of an
organizational unit are determined locally, based upon past performance and
an assessment of improvement opportunities. It is a continuing responsibility
of the unit manager to establish organizational standards of performance
through the goal-setting and planning process.
Both the quantity and quality of production have an impact on staffing
requirements and should be factored into the design of the organization.
142 Analysis of Skill Requirements
Skill requirements serve a dual purpose by (a) establishing the database for
the construction of selection criteria and (b) placing a clearer focus around
certain organizational planning requirements. Chief among these
requirements is the development of a hierarchical management structure for
the organization that is internally consistent and compatible with structures in
other postal installations.
In order to fix responsibility for work, it is necessary to assign specific duties
to designated staff positions. In establishing the requirements of the position,
the necessary job-related skills and experience must be analyzed to identify
structural implications. The starting point in this process is a definition of job
content. A narrative description must be prepared as follows:
a. State the function and purpose of the position.
b. State the scope of responsibility.
c. Outline in detail the duties performed by the incumbent. The description
of each duty suggests the skills required for its effective execution.
Action words - such as directs, manages, supervises, oversees,
plans, and coordinates - used to describe the depth of involvement
and the degree of responsibility help to differentiate the level of skill,
knowledge, and ability required to ensure effective performance in the
designated position.
d. Analyze the job content and connect the purpose, responsibility, and
duties of the position to the educational disciplines, work experience,
physical capacities, and job-related skills expected of the incumbent.
e. State the degree of supervision required.
Selection procedures and criteria for all field positions are provided by
Selection, Evaluation, and Recognition, Employee Resource Management,
through the issuance of (1) a qualification standard or (2) interim statements
of qualifications or selection procedures.
143 Analysis of Functional Relationships
The identification of work and skill requirements provides the basis for
determining staffing needs. The configuration of the organization must then
be analyzed to ensure that functional alignments and reporting relationships
are appropriate to the unit's mission. Criteria used in making such a
determination are identified in 130. The more important criteria are repeated
below:
a. Functional statements and standard position descriptions are reviewed
to eliminate duplication of responsibility between subordinate units of
the organization, as discussed in 133. Where such duplication is found,
functional responsibility should be assigned to the subordinate unit
having dominant interests in the activity under review.
b. Functional activity should be grouped to ensure homogeneity of work
as discussed in 135.
c. Span of control should be established consistent with the guidelines
discussed in 136.
d. Vertical reporting relationships should establish a hierarchy of
responsibility consistent with the guidelines discussed in 134.1.
e. Contingent work relationships should be aligned consistent with the
concepts discussed in 134.2.
143.21 Administrative and Functional Reporting Relationships
An administrative reporting relationship establishes a clear line of authority
between positions or units in the organizational hierarchy. The actions of the
subordinate are subject to the direction and/or approval of the next higher
level of management, irrespective of the autonomy the latter may choose to
grant to, or withhold from, subordinate levels. Subordinate positions never
report administratively to more than one higher level supervisor.
A functional reporting relationship establishes a connection between
positions or organizational units at different management levels based on the
specialized nature of the function for which a mutual responsibility is shared.
In this type of situation - often referred to as an indirect reporting
relationship - the higher level position or unit provides functional guidance
and support to positions or units lower in the organizational structure.
Human Resources at Headquarters, for example, has functional responsibility
for the area human resources activities, while these activities report
administratively and directly to the vice president of Area Operations. There
is no formal line of authority in a strictly functional relationship.
The administrative head of an organization integrates all unit activities
through the exercise of organizational authority. Detailed functional expertise
is usually located immediately below this level of management, where
administrative authority and functional direction are joined.
Sometimes, however, it is necessary to separate administrative and
functional reporting relationships. A separate functional reporting relationship
might be justified when:
a. The knowledge essential to effective performance is so specialized that
the function can only be placed in the higher levels of the organization
(e.g., the Postal Service medical program).
b. The consequences of an incorrect decision are so great as to require
continuing consultation with a higher organizational level having policy
responsibility for the functional area in question (e.g., international
mail).
c. The sensitivity of the function requires total uniformity of execution
throughout the entire management system (e.g., labor relations or
purchasing).
Organizational relationships are analyzed in terms of the adequacy of
functional direction. Where appropriate, functional reporting relationships can
be formally established that sanction channels of communication not
reflected in the administrative structure.
143.22 Line and Staff Relationships
While line relationships are based upon the exercise of organizational
authority, staff relationships are founded on the exercise of organizational
influence and the authority of knowledge. While line managers are
empowered to make operating decisions, staff personnel act in an advisory
role. Line managers report administratively to the next higher level of
management. Staff managers report administratively to line or staff
management and often functionally to another level of management outside
and, sometimes, above the unit structure.
Staff functions are analyzed on the basis of the following criteria:
a. Appropriate Placement Within the Structure. If the reporting point is too
low in the structure, the exercise of influence is impaired.
b. Extent of Need. Functional expertise may be readily accessible to line
management outside the immediate structure, obviating the need for
redundant internal staff.
143.23 Responsibility and Authority
A principle rule in organizational design requires authority to be
commensurate with responsibility. Managers cannot be held accountable for
results over which they have limited or no control. Reporting relationships are
analyzed to uncover any organizational defects that:
a. Place authority at one or more levels above the designated level of
responsibility.
b. Place essential organizational resources outside the managerial control
of the manager who needs them most and who should be accountable
for their use.
c. Grant overlapping authority to two or more positions or units that could
lead to jurisdictional conflicts.
144 Identification of Discrepancies
144.1 Design of Model
The analysis described in 141 through 143 provides a basis for the design of
an organizational model:
a. Analysis of work and skill requirements helps to determine the
necessary organizational resources.
b. Analysis of reporting relationships helps to arrange the resources into a
functional structure.
144.2 Comparison With Existing Organization
If the existing organization is matched against the model, structural and
staffing discrepancies can be identified. The discrepancies become the focal
points for organizational change if further analysis confirms the need to
modify the existing structure or staffing plan.
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