ASPECTS OF ORGANIZATION THEORY ARE REVIEWED ANALYTICALLY TO DEVELOP THE IMPLICATIONS OF THREE MAJOR HYPOTHESES DEFINING THE RELATIONSHIP OF BUREAUS AND BUREAUCRATIC OFFICIALS TO THE DECISIONMAKING PROCESS IN A REALISTIC WORLD WHERE INFORMATION IS COSTLY AND UNCERTAINTY IS AN IMPORTANT FACTOR IN MAKING DECISIONS--(1) BUREAUCRATIC OFFICIALS SEEK TO ATTAIN THEIR GOALS RATIONALLY, (2) FIVE IDEAL TYPES OF BUREAUCRATIC OFFICIALS (CLIMBERS, CONSERVERS, ZEALOTS, ADVOCATES, AND STATESMEN) HAVE DISTINCT SETS OF SELF-INTEREST GOALS, WITH SUBSETS OF POWER, INCOME, PRESTIGE, SECURITY, CONVENIENCE, LOYALTY, PRIDE IN WORK, AND DESIRE TO SERVE THE PUBLIC INTEREST, AND (3) EVERY ORGANIZATION'S SOCIAL FUNCTIONS INFLUENCE THE INTERNAL STRUCTURE AND BEHAVIOR OF THE ORGANIZATION AND ARE INFLUENCED BY THEM. SPECIAL ATTENTION IS GIVEN TO (1) THE LIFE CYCLE OF BUREAUS, (2) INTERNAL CHARACTERISTICS COMMON TO ALL BUREAUS, (3) COMMUNICATIONS IN BUREAUS, (4) CHANGE PROCESSES IN BUREAUS, (5) THE BASIC NATURE OF CONTROL PROBLEMS IN BUREAUS, (6) CONTROL PROCESSES AND DEVICES, (7) THE RELATIONSHIP OF A BUREAU'S FUNCTIONS TO ITS GOAL CONSENSUS, AS DETERMINED BY SELECTIVE RECRUITMENT, INDOCTRINATION, AND IDEOLOGIES, AND (8) THE IMPACT OF THE INCREASING BUREAUCRATIZATION OF U.S. SOCIETY UPON INDIVIDUAL FREEDOM. THIS DOCUMENT IS AVAILABLE FROM THE RAND CORPORATION, 1700 MAIN STREET, SANTA MONICA, CALIFORNIA 90406, FOR $5.00 HC. (JK)