Chapter II: The Principles of Scientific Management (3)

Fourth. All young women should be given two consecutive days of rest (with pay) each month, to be taken whenever they may choose. It is my impression that these girls were given this privilege, although I am not quite certain on this point.

The benefits which came to the company from these changes were:

First. A substantial improvement in the quality of the product.

Second. A material reduction in the cost of inspection, in spite of the extra expense involved in clerk work, teachers, time study, over-inspectors, and in paying higher wages.

Third. That the most friendly relations existed between the management and the employees, which rendered labor troubles of any kind or a strike impossible.

These good results were brought about by many changes which substituted favorable for unfavorable working conditions. It should be appreciated, however, that the one element which did more than all of the others was, the careful selection of girls with quick perception to replace those whose perceptions were slow--(the substitution of girls with a low personal coefficient for those whose personal coefficient was high)--the scientific selection of the workers.

The illustrations have thus far been purposely confined to the more elementary types of work, so that a very strong doubt must still remain as to whether this kind of cooperation is desirable in the case of more intelligent mechanics, that is, in the case of men who are more capable of generalization, and who would therefore be more likely, of their own volition, to choose the more scientific and better methods. The following illustrations will be given for the purpose of demonstrating the fact that in the higher classes of work the scientific laws which are developed are so intricate that the high-priced mechanic needs (even more than the cheap laborer) the cooperation of men better educated than himself in finding the laws, and then in selecting, developing, and training him to work in accordance with these laws. These illustrations should make perfectly clear our original proposition that in practically all of the mechanic arts the science which underlies each workman's act is so great and amounts to so much that the workman who is best suited to actually doing the work is incapable, either through lack of education or through insufficient mental capacity, of understanding this science.

A doubt, for instance, will remain in the minds perhaps of most readers (in the case of an establishment which manufactures the same machine, year in and year out, in large quantities, and in which, therefore, each mechanic repeats the same limited series of operations over and over again), whether the ingenuity of each workman and the help which he from time to time receives from his foreman will not develop such superior methods and such a personal dexterity that no scientific study which could be made would result in a material increase in efficiency.

A number of years ago a company employing about three hundred men, which had been manufacturing the same machine for ten to fifteen years, sent for us to report as to whether any gain could be made through the introduction of scientific management. Their shops had been run for many years under a good superintendent and with excellent foremen and workmen, on piece work. The whole establishment was, without doubt, in better physical condition than the average machine-shop in this country. The superintendent was distinctly displeased when told that through the adoption of task management the output, with the same number of men and machines, could be more than doubled. He said that he believed that any such statement was mere boasting, absolutely false, and instead of inspiring him with confidence, he was disgusted that any one should make such an impudent claim. He, however, readily assented to the proposition that he should select any one of the machines whose output he considered as representing the average of the shop, and that we should then demonstrate on this machine that through scientific methods its output could be more than doubled.

The machine selected by him fairly represented the work of the shop. It had been run for ten or twelve years past by a first-class mechanic who was more than equal in his ability to the average workmen in the establishment. In a shop of this sort in which similar machines are made over and over again, the work is necessarily greatly subdivided, so that no one man works upon more than a comparatively small number of parts during the year. A careful record was therefore made, in the presence of both parties, of the time actually taken in finishing each of the parts which this man worked upon. The total time required by him to finish each piece, as well as the exact speeds and feeds which he took, were noted and a record was kept of the time which he took in setting the work in the machine and removing it. After obtaining in this way a statement of what represented a fair average of the work done in the shop, we applied to this one machine the principles of scientific management.

By means of four quite elaborate slide-rules, which have been especially made for the purpose of determining the all-round capacity of metal-cutting machines, a careful analysis was made of every element of this machine in its relation to the work in hand. Its Pulling power at its various speeds, its feeding capacity, and its proper speeds were determined by means of the slide-rules, and changes were then made in the countershaft and driving pulleys so as to run it at its proper speed. Tools, made of high-speed steel, and of the proper shapes, were properly dressed, treated, and ground. (It should be understood, however, that in this case the high-speed steel which had heretofore been in general use in the shop was also used in our demonstration.) A large special slide-rule was then made, by means of which the exact speeds and feeds were indicated at which each kind of work could be done in the shortest possible time in this particular lathe. After preparing in this way so that the workman should work according to the new method, one after another, pieces of work were finished in the lathe, corresponding to the work which had been done in our preliminary trials, and the gain in time made through running the machine according to scientific principles ranged from two and one-half times the speed in the slowest instance to nine times the speed in the highest.

The change from rule-of-thumb management to scientific management involves, however, not only a study of what is the proper speed for doing the work and a remodeling of the tools and the implements in the shop, but also a complete change in the mental attitude of all the men in the shop toward their work and toward their employers. The physical improvements in the machines necessary to insure large gains, and the motion, study followed by minute study with a stop-watch of the time in which each workman should do his work, can be made comparatively quickly. But the change in the mental attitude and in the habits of the three hundred or more workmen can be brought about only slowly and through a long series of object-lessons, which finally demonstrates to each man the great advantage which he will gain by heartily cooperating in his every-day work with the men in the management. Within three years, however, in this shop, the output had been more than doubled per man and per machine. The men had been carefully selected and in almost all cases promoted from a lower to a higher order of work, and so instructed by their teachers (the functional foremen) that they were able to earn higher wages than ever before. The average increase in the daily earnings of each man was about 35 per cent., while, at the same time, the sum total of the wages paid for doing a given amount of work was lower than before. This increase in the speed of doing the work, of course, involved a substitution of the quickest hand methods for the old independent rule-of-thumb methods, and an elaborate analysis of the hand work done by each man. (By hand work is meant such work as depends upon the manual dexterity and speed of a workman, and which is independent of the work done by the machine.) The time saved by scientific hand work was in many cases greater even than that saved in machine-work.

It seems important to fully explain the reason why, with the aid of a slide-rule, and after having studied the art of cutting metals, it was possible for the scientifically equipped man, who had never before seen these particular jobs, and who had never worked on this machine, to do work from two and one-half to nine times as fast as it had been done before by a good mechanic who had spent his whole time for some ten to twelve years in doing this very work upon this particular machine. In a word, this was possible because the art of cutting metals involves a true science of no small magnitude, a science, in fact, so intricate that it is impossible for any machinist who is suited to running a lathe year in and year out either to understand it or to work according to its laws without the help of men who have made this their specialty. Men who are un-familiar with machine-shop work are prone to look upon the manufacture of each piece as a special problem, independent of any other kind of machine-work. They are apt to think, for instance, that the problems connected with making the parts of an engine require the especial study, one may say almost the life study, of a set of engine-making mechanics, and that these problems are entirely different from those which would be met with in machining lathe or planer parts. In fact, however, a study of those elements which are peculiar either to engine parts or to lathe parts is trifling, compared with the great study of the art, or science, of cutting metals, upon a knowledge of which rests the ability to do really fast machine-work of all kinds.

The real problem is how to remove chips fast from a casting or a forging, and how to make the piece smooth and true in the shortest time, and it matters but little whether the piece being worked upon is part, say, of a marine engine, a printing-press, or an automobile. For this reason, the man with the slide rule, familiar with the science of cutting metals, who had never before seen this particular work, was able completely to distance the skilled mechanic who had made the parts of this machine his specialty for years.

It is true that whenever intelligent and educated men find that the responsibility for making progress in any of the mechanic arts rests with them, instead of upon the workmen who are actually laboring at the trade, that they almost invariably start on the road which leads to the development of a science where, in the past, has existed mere traditional or rule-of-thumb knowledge. When men, whose education has given them the habit of generalizing and everywhere looking for laws, find themselves confronted with a multitude of problems, such as exist in every trade and which have a general similarity one to another, it is inevitable that they should try to gather these problems into certain logical groups, and then search for some general laws or rules to guide them in their solution. As has been pointed out, however, the underlying principles of the management of "initiative and incentive," that is, the underlying philosophy of this management, necessarily leaves the solution of all of these problems in the hands of each individual workman, while the philosophy of scientific management places their solution in the hands of the management. The workman's whole time is each day taken in actually doing the work with his hands, so that, even if he had the necessary education and habits of generalizing in his thought, he lacks the time and the opportunity for developing these laws, because the study of even a simple law involving say time study requires the cooperation of two men, the one doing the work while the other times him with a stop-watch. And even if the workman were to develop laws where before existed only rule-of-thumb knowledge, his personal interest would lead him almost inevitably to keep his discoveries secret, so that he could, by means of this special knowledge, personally do more work than other men and so obtain higher wages.

Under scientific management, on the other hand, it becomes the duty and also the pleasure of those who are engaged in the management not only to develop laws to replace rule of thumb, but also to teach impartially all of the workmen who are under them the quickest ways of working. The useful results obtained from these laws are always so great that any company can well afford to pay for the time and the experiments needed to develop them. Thus under scientific management exact scientific knowledge and methods are everywhere, sooner or later, sure to replace rule of thumb, whereas under the old type of management working in accordance with scientific laws is an impossibility. The development of the art or science of cutting metals is an apt illustration of this fact. In the fall of 1880, about the time that the writer started to make the experiments above referred to, to determine what constitutes a proper day's work for a laborer, he also obtained the permission of Mr. William Sellers, the President of the Midvale Steel Company, to make a series of experiments to determine what angles and shapes of tools were the best for cutting steel, and also to try to determine the proper cutting speed for steel. At the time that these experiments were started it was his belief that they would not last longer than six months, and, in fact, if it had been known that a longer period than this would be required, the permission to spend a considerable sum of money in making them would not have been forthcoming.

A 66-inch diameter vertical boring-mill was the first machine used in making these experiments, and large locomotive tires, made out of hard steel of uniform quality, were day after day cut up into chips in gradually learning how to make, shape, and use the cutting tools so that they would do faster work. At the end of six months sufficient practical information had been obtained to far more than repay the cost of materials and wages which had been expended in experimenting. And yet the comparatively small number of experiments which had been made served principally to make it clear that the actual knowledge attained was but a small fraction of that which still remained to be developed, and which was badly needed by us, in our daily attempt to direct and help the machinists in their tasks.

Experiments in this field were carried on, with occasional interruption, through a period of about 26 years, in the course of which ten different experimental machines were especially fitted up to do this work. Between 30,000 and 50,000 experiments were carefully recorded, and many other experiments were made, of which no record was kept. In studying these laws more than 800,000 pounds of steel and iron was cut up into chips with the experimental tools, and it is estimated that from $150,000 to $200,000 was spent in the investigation.

Work of this character is intensely interesting to any one who has any love for scientific research. For the purpose of this paper, however, it should be fully appreciated that the motive power which kept these experiments going through many years, and which supplied the money and the opportunity for their accomplishment, was not an abstract search after scientific knowledge, but was the very practical fact that we lacked the exact information which was needed every day, in order to help our machinists to do their work in the best way and in the quickest time.

All of these experiments were made to enable us to answer correctly the two questions which face every machinist each time that he does a piece of work in a metal-cutting machine, such as a lathe, planer, drill press, or milling machine. These two questions are:

In order to do the work in the quickest time, At what cutting speed shall I run my machine? and

What feed shall I use?

They sound so simple that they would appear to call for merely the trained judgment of any good mechanic. In fact, however, after working 26 years, it has been found that the answer in every case involves the solution of an intricate mathematical problem, in which the effect of twelve independent variables must be determined.

Each of the twelve following variables has an important effect upon the answer. The figures which are given with each of the variables represent the effect of this element upon the cutting speed.

For example, after the first variable (A) we quote,

"The proportion is as I in the case of semi-hardened steel or chilled iron to 100 in the case of a very soft, low-carbon steel." The meaning of this quotation is that soft steel can be cut 100 times as fast as the hard steel or chilled iron. The ratios which are given, then, after each of these elements, indicate the wide range of judgment which practically every machinist has been called upon to exercise in the past in determining the best speed at which to run the machine and the best feed to use.

(A) The quality of the metal which is to be cut; i.e., its hardness or other qualities which affect the cutting speed. The proportion is as 1 in the case of semi-hardened steel or chilled iron to 100 in the case of very soft, low-carbon steel.

(B) The chemical composition of the steel from which the tool is made, and the heat treatment of the tool. The proportion is as 1 in tools made from tempered carbon steel to 7 in the best high-speed tools.

(C) The thickness of the shaving, or, the thickness of the spiral strip or band of metal which is to be removed by the tool. The proportion is as 1 with thickness of shaving 3/16 of an inch to 3 1/2 with thickness of shaving 1/64 of an inch.

(D) The shape or contour of the cutting edge of the tool. The proportion is as 1 in a thread tool to 6 in a broad-nosed cutting tool.

(E) Whether a copious stream of water or other cooling medium is used on the tool. The proportion is as 1 for tool running dry to 1.41 for tool cooled by a copious stream of water.

(F) The depth of the cut. The proportion is as 1 with 1/2 inch depth of cut to 1.36 with 1/8 inch depth of cut.

(G) The duration of the cut, i.e., the time which a tool must last under pressure of the shaving without being reground. The proportion is as 1 when tool is to be ground every 1 1/2 hours to 1.20 when tool is to be ground every 20 minutes.

(H) The lip and clearance angles of the tool. The proportion is as 1 with lip angle of 68 degrees to 1.023 with lip angle of 61 degrees.

(J) The elasticity of the work and of the tool on account of producing chatter. The proportion is as 1 with tool chattering to 1.15 with tool running smoothly.

(K) The diameter of the casting or forging which is being cut.

(L) The pressure of the chip or shaving upon the cutting surface of the tool.

(M) The pulling power and the speed and feed changes of the machine.

It may seem preposterous to many people that it should have required a period of 26 years to investigate the effect of these twelve variables upon the cutting speed of metals. To those, however, who have had personal experience as experimenters, it will be appreciated that the great difficulty of the problem lies in the fact that it contains so many variable elements. And in fact the great length of time consumed in making each single experiment was caused by the difficulty of holding eleven variables constant and uniform throughout the experiment, while the effect of the twelfth variable was being investigated. Holding the eleven variables constant was far more difficult than the investigation of the twelfth element.

As, one after another, the effect upon the cutting speed of each of these variables was investigated, in order that practical use could be made of this knowledge, it was necessary to find a mathematical formula which expressed in concise form the laws which had been obtained. As examples of the twelve formulae which were developed, the three following are given:

P = 45,000 D 14/15 F 3/4

V = 90/T 1/8

V = 11.9/ (F 0.665(48/3 D) 0.2373 + (2.4 / (18 + 24D))

After these laws had been investigated and the various formulae which mathematically expressed them had been determined, there still remained the difficult task of how to solve one of these complicated mathematical problems quickly enough to make this knowledge available for every-day use. If a good mathematician who had these formula before him were to attempt to get the proper answer (i.e., to get the correct cutting speed and feed by working in the ordinary way) it would take him from two to six hours, say, to solve a single problem; far longer to solve the mathematical problem than would be taken in most cases by the workmen in doing the whole job in his machine. Thus a task of considerable magnitude which faced us was that of finding a quick solution of this problem, and as we made progress in its solution, the whole problem was from time to time presented by the writer to one after another of the noted mathematicians in this country. They were offered any reasonable fee for a rapid, practical method to be used in its solution. Some of these men merely glanced at it; others, for the sake of being courteous, kept it before them for some two or three weeks. They all gave us practically the same answer: that in many cases it was possible to, solve mathematical problems which contained four variables, and in some cases problems with five or six variables, but that it was manifestly impossible to solve a problem containing twelve variables in any other way than by the slow process of "trial and error."

A quick solution was, however, so much of a necessity in our every-day work of running machine-shops, that in spite of the small encouragement received from the mathematicians, we continued at irregular periods, through a term of fifteen years, to give a large amount of time searching for a simple solution. Four or five men at various periods gave practically their whole time to this work, and finally, while we were at the Bethlehem Steel Company, the slide-rule was developed which is illustrated on Folder No. 11 of the paper "On the Art of Cutting Metals," and is described in detail in the paper presented by Mr. Carl G. Barth to the American Society of Mechanical Engineers, entitled "Slide-rules for the Machine-shop, as a part of the Taylor System of Management" (Vol. XXV of The Transactions of the American Society of Mechanical Engineers). By means of this slide-rule, one of these intricate problems can be solved in less than a half minute by any good mechanics whether he understands anything about mathematics or not, thus making available for every-day, practical use the years of experimenting on the art of cutting metals. This is a good illustration of the fact that some way can always be found of making practical, everyday use of complicated scientific data, which appears to be beyond the experience and the range of the technical training of ordinary practical men. These slide-rules have been for years in constant daily use by machinists having no knowledge of mathematics.

A glance at the intricate mathematical formula (see page 109) which represent the laws of cutting metals should clearly show the reason why it is impossible for any machinist, without the aid of these laws, and who depends upon his personal experience, correctly to guess at the answer to the two questions,

What speed shall I use?

What feed shall I use?

even though he may repeat the same piece of work many times.

To return to the case of the machinist who had been working for ten to twelve years in machining the same pieces over and over again, there was but a remote chance in any of the various kinds of work which this man did that he should hit upon the one best method of doing each piece of work out of the hundreds of possible methods which lay before him. In considering this typical case, it must also be remembered that the metal-cutting machines throughout our machine-shops have practically all been speeded by their makers by guesswork, and without the knowledge obtained through a study of the art of cutting metals. In the machine-shops systematized by us we have found that there is not one machine in a hundred which is speeded by its makers at anywhere near the correct cutting speed. So that, in order to compete with the science of cutting metals, the machinist, before he could use proper speeds, would first have to put new pulleys on the countershaft of his machine, and also make in most cases changes in the shapes and treatment of his tools, etc. Many of these changes are matters entirely beyond his control, even if he knows what ought to be done.

If the reason is clear to the reader why the rule-of-thumb knowledge obtained by the machinist who is engaged on repeat work cannot possibly compete with the true science of cutting metals, it should be even more apparent why the high-class mechanic, who is called upon to do a great variety of work from day to day, is even less able to compete with this science. The high-class mechanic who does a different kind of work each day, in order to do each job in the quickest time, would need, in addition to a thorough knowledge of the art of cutting metals, a vast knowledge and experience in the quickest way of doing each kind of hand work. And the reader, by calling to mind the gain which was made by Mr. Gilbreth through his motion and time study in laying bricks, will appreciate the great possibilities for quicker methods of doing all kinds of hand work which lie before every tradesman after he has the help which comes from a scientific motion and time study of his work.

For nearly thirty years past, time-study men connected with the management of machine-shops have been devoting their whole time to a scientific motion study, followed by accurate time study, with a stop-watch, of all of the elements connected with the machinist's work. When, therefore, the teachers, who form one section of the management, and who are cooperating with the working men, are in possession both of the science of cutting metals and of the equally elaborate motion-study and time-study science connected with this work, it is not difficult to appreciate why even the highest class mechanic is unable to do his best work without constant daily assistance from his teachers. And if this fact has been made clear to the reader, one of the important objects in writing this paper will have been realized.

It is hoped that the illustrations which have been given make it apparent why scientific management must inevitably in all cases produce overwhelmingly greater results, both for the company and its employees, than can be obtained with the management of "initiative and incentive." And it should also be clear that these results have been attained, not through a marked superiority in the mechanism of one type of management over the mechanism of another, but rather through the substitution of one set of underlying principles for a totally different set of principles, by the substitution of one philosophy for another philosophy in industrial management.

To repeat them throughout all of these illustrations, it will be seen that the useful results have hinged mainly upon (1) the substitution of a science for the individual judgment of the workman; (2) the scientific selection and development of the workman, after each man has been studied, taught, and trained, and one may say experimented with, instead of allowing the workmen to select themselves and develop in a haphazard way; and (3) the intimate cooperation of the management with the workmen, so that they together do the work in accordance with the scientific laws which have been developed, instead of leaving the solution of each problem in the hands of the individual workman. In applying these new principles, in place of the old individual effort of each workman, both sides share almost equally in the daily performance of each task, the management doing that part of the work for which they are best fitted, and the workmen the balance.

It is for the illustration of this philosophy that this paper has been written, but some of the elements involved in its general principles should be further discussed.

The development of a science sounds like a formidable undertaking, and in fact anything like a thorough study of a science such as that of cutting metals necessarily involves many years of work. The science of cutting metals, however, represents in its complication, and in the time required to develop it, almost an extreme case in the mechanic arts. Yet even in this very intricate science, within a few months after starting, enough knowledge had been obtained to much more than pay for the work of experimenting. This holds true in the case of practically all scientific development in the mechanic arts. The first laws developed for cutting metals were crude, and contained only a partial knowledge of the truth, yet this imperfect knowledge was vastly better than the utter lack of exact information or the very imperfect rule of thumb which existed before, and it enabled the workmen, with the help of the management, to do far quicker and better work.

For example, a very short time was needed to discover one or two types of tools which, though imperfect as compared with the shapes developed years afterward, were superior to all other shapes and kinds in common use. These tools were adopted as standard and made possible an immediate increase in the speed of every machinist who used them. These types were superseded in a comparatively short time by still other tools which remained standard until they in their turn made way for later improvements.*

[*Footnote: Time and again the experimenter in the mechanic arts will find himself face to face with the problem as to whether he had better make immediate practical use of the knowledge which he has attained, or wait until some positive finality in his conclusions has been reached. He recognizes clearly the fact that he has already made some definite progress, but sees the possibility (even the probability) of still further improvement. Each particular case must of course be independently considered, but the general conclusion we have reached is that in most instances it is wise to put one's conclusions as soon as possible to the rigid test of practical use. The one indispensable condition for such a test, however, is that the experimenter shall have full opportunity, coupled with sufficient authority, to insure a thorough and impartial trial. And this, owing to the almost universal prejudice in favor of the old, and to the suspicion of the new, is difficult to get.]

The science which exists in most of the mechanic arts is, however, far simpler than the science of cutting metals. In almost all cases, in fact, the laws or rules which are developed are so simple that the average man would hardly dignify them with the name of a science. In most trades, the science is developed through a comparatively simple analysis and time study of the movements required by the workmen to do some small part of his work, and this study is usually made by a man equipped merely with a stop-watch and a properly ruled notebook. Hundreds of these "time-study men" are now engaged in developing elementary scientific knowledge where before existed only rule of thumb. Even the motion study of Mr. Gilbreth in bricklaying (described on pages 77 to 84) involves a much more elaborate investigation than that which occurs in most cases. The general steps to be taken in developing a simple law of this class are as follows:

First. Find, say, 10 or 15 different men (preferably in as many separate establishments and different parts of the country) who are especially skilful in doing the particular work to be analyzed.

Second. Study the exact series of elementary operations or motions which each of these men uses in doing the work which is being investigated, as well as the implements each man uses.

Third. Study with a stop-watch the time required to make each of these elementary movements and then select the quickest way of doing each element of the work.

Fourth. Eliminate all false movements, slow movements, and useless movements.

Fifth. After doing away with all unnecessary movements, collect into one series the quickest and best movements as well as the best implements.

This one new method, involving that series of motions which can be made quickest and best, is then substituted in place of the ten or fifteen inferior series which were formerly in use. This best method becomes standard, and remains standard, to be taught first to the teachers (or functional foremen) and by them to every workman in the establishment until it is superseded by a quicker and better series of movements. In this simple way one element after another of the science is developed.

In the same way each type of implement used in a trade is studied. Under the philosophy of the management of "initiative and incentive" each work-man is called upon to use his own best judgment, so as to do the work in the quickest time, and from this results in all cases a large variety in the shapes and types of implements which are used for any specific purpose. Scientific management requires, first, a careful investigation of each of the many modifications of the same implement, developed under rule of thumb; and second, after a time study has been made of the speed attainable with each of these implements, that the good points of several of them shall be united in a single standard implement, which will enable the workman to work faster and with greater ease than he could before. This one implement, then, is adopted as standard in place of the many different kinds before in use, and it remains standard for all workmen to use until superseded by an implement which has been shown, through motion and time study, to be still better.

With this explanation it will be seen that the development of a science to replace rule of thumb is in most cases by no means a formidable under-taking, and that it can be accomplished by ordinary, every-day men without any elaborate scientific training; but that, on the other hand, the successful use of even the simplest improvement of this kind calls for records, system, and cooperation where in the past existed only individual effort.

There is another type of scientific investigation which has been referred to several times in this paper, and which should receive special attention, namely, the accurate study of the motives which influence men. At first it may appear that this is a matter for individual observation and judgment, and is not a proper subject for exact scientific experiments. It is true that the laws which result from experiments of this class, owing to the fact that the very complex organism--the human being--is being experimented with, are subject to a larger number of exceptions than is the case with laws relating to material things. And yet laws of this kind, which apply to a large majority of men, unquestionably exist, and when clearly defined are of great value as a guide in dealing with men. In developing these laws, accurate, carefully planned and executed experiments, extending through a term of years, have been made, similar in a general way to the experiments upon various other elements which have been referred to in this paper. Perhaps the most important law belonging to this class, in its relation to scientific management, is the effect which the task idea has upon the efficiency of the workman. This, in fact, has become such an important element of the mechanism of scientific management, that by a great number of people scientific management has come to be known as "task management."

There is absolutely nothing new in the task idea. Each one of us will remember that in his own case this idea was applied with good results in his school-boy days. No efficient teacher would think of giving a class of students an indefinite lesson to learn. Each day a definite, clear-cut task is set by the teacher before each scholar, stating that he must learn just so much of the subject; and it is only by this means that proper, systematic progress can be made by the students. The average boy would go very slowly if, instead of being given a task, he were told to do as much as he could. All of us are grown-up children, and it is equally true that the average workman will work with the greatest satisfaction, both to himself and to his employer, when he is given each day a definite task which he is to perform in a given time, and which constitutes a proper day's work for a good workman. This furnishes the workman with a clear-cut standard, by which he can throughout the day measure his own progress, and the accomplishment of which affords him the greatest satisfaction.

The writer has described in other papers a series of experiments made upon workmen, which have resulted in demonstrating the fact that it is impossible, through any long period of time, to get work-men to work much harder than the average men around them, unless they are assured a large and a permanent increase in their pay. This series of experiments, however, also proved that plenty of workmen can be found who are willing to work at their best speed, provided they are given this liberal increase in wages. The workman must, however, be fully assured that this increase beyond the average is to be permanent. Our experiments have shown that the exact percentage of increase required to make a workman work at his highest speed depends upon the kind of work which the man is doing.

It is absolutely necessary, then, when workmen are daily given a task which calls for a high rate of speed on their part, that they should also be insured the necessary high rate of pay whenever they are successful. This involves not only fixing for each man his daily task, but also paying him a large bonus, or premium, each time that he succeeds in doing his task in the given time. It is difficult to appreciate in full measure the help which the proper use of these two elements is to the workman in elevating him to the highest standard of efficiency and speed in his trade, and then keeping him there, unless one has seen first the old plan and afterward the new tried upon the same man. And in fact until one has seen similar accurate experiments made upon various grades of workmen engaged in doing widely different types of work. The remarkable and almost uniformly good results from the correct application of the task and the bonus must be seen to be appreciated.

These two elements, the task and the bonus (which, as has been pointed out in previous papers, can be applied in several ways), constitute two of the most important elements of the mechanism of scientific management. They are especially important from the fact that they are, as it were, a climax, demanding before they can be used almost all of the other elements of the mechanism; such as a planning department, accurate time study, standardization of methods and implements, a routing system, the training of functional foremen or teachers, and in many cases instruction cards slide-rules, etc. (Referred to later in rather more detail on page 129.)

The necessity for systematically teaching workmen how to work to the best advantage has been several times referred to. It seems desirable, therefore, to explain in rather more detail how this teaching is done. In the case of a machine-shop which is managed under the modern system, detailed written instructions as to the best way of doing each piece of work are prepared in advance, by men in the planning department. These instructions represent the combined work of several men in the planning room, each of whom has his own specialty, or function. One of them, for instance, is a specialist on the proper speeds and cutting tools to be used. He uses the slide-rules which have been above described as an aid, to guide him in obtaining proper speeds, etc. Another man analyzes the best and quickest motions to be made by the workman in setting the work up in the machine and removing it, etc. Still a third, through the time-study records which have been accumulated, makes out a timetable giving the proper speed for doing each element of the work. The directions of all of these men, however, are written on a single instruction card, or sheet.

These men of necessity spend most of their time in the planning department, because they must be close to the records and data which they continually use in their work, and because this work requires the use of a desk and freedom from interruption. Human nature is such, however, that many of the workmen, if left to themselves, would pay but little attention to their written instructions. It is necessary, therefore, to provide teachers (called functional foremen) to see that the workmen both understand and carry out these written instructions.

Under functional management, the old-fashioned single foreman is superseded by eight different men, each one of whom has his own special duties, and these men, acting as the agents for the planning department (see paragraph 234 to 245 of the paper entitled "Shop Management"), are the expert teachers, who are at all times in the shop, helping, and directing the workmen. Being each one chosen for his knowledge and personal skill in his specialty, they are able not only to tell the workman what he should do, but in case of necessity they do the work themselves in the presence of the workman, so as to show him not only the best but also the quickest methods.

One of these teachers (called the inspector) sees to it that he understands the drawings and instructions for doing the work. He teaches him how to do work of the right quality; how to make it fine and exact where it should be fine, and rough and quick where accuracy is not required,--the one being just as important for success as the other. The second teacher (the gang boss) shows him how to set up the job in his machine, and teaches him to make all of his personal motions in the quickest and best way. The third (the speed boss) sees that the machine is run at the best speed and that the proper tool is used in the particular way which will enable the machine to finish its product in the shortest possible time. In addition to the assistance given by these teachers, the workman receives orders and help from four other men; from the "repair boss" as to the adjustment, cleanliness, and general care of his machine, belting, etc.; from the "time clerk," as to everything relating to his pay and to proper written reports and returns; from the "route clerk," as to the order in which he does his work and as to the movement of the work from one part of the shop to another; and, in case a workman gets into any trouble with any of his various bosses, the "disciplinarian" interviews him.

It must be understood, of course, that all workmen engaged on the same kind of work do not require the same amount of individual teaching and attention from the functional foremen. The men who are new at a given operation naturally require far more teaching and watching than those who have been a long time at the same kind of jobs.

Now, when through all of this teaching and this minute instruction the work is apparently made so smooth and easy for the workman, the first impression is that this all tends to make him a mere automaton, a wooden man. As the workmen frequently say when they first come under this system, "Why, I am not allowed to think or move without some one interfering or doing it for me!" The same criticism and objection, however, can be raised against all other modern subdivision of labor. It does not follow, for example, that the modern surgeon is any more narrow or wooden a man than the early settler of this country. The frontiersman, however, had to be not only a surgeon, but also an architect, house-builder, lumberman, farmer, soldier, and doctor, and he had to settle his law cases with a gun. You would hardly say that the life of the modern surgeon is any more narrowing, or that he is more of a wooden man than the frontiersman. The many problems to be met and solved by the surgeon are just as intricate and difficult and as developing and broadening in their way as were those of the frontiersman.

And it should be remembered that the training of the surgeon has been almost identical in type with the teaching and training which is given to the workman under scientific management. The surgeon, all through his early years, is under the closest supervision of more experienced men, who show him in the minutest way how each element of his work is best done. They provide him with the finest implements, each one of which has been the subject of special study and development, and then insist upon his using each of these implements in the very best way. All of this teaching, however, in no way narrows him. On the contrary he is quickly given the very best knowledge of his predecessors; and, provided (as he is, right from the start) with standard implements and methods which represent the best knowledge of the world up to date, he is able to use his own originality and ingenuity to make real additions to the world's knowledge, instead of reinventing things which are old. In a similar way the workman who is cooperating with his many teachers under scientific management has an opportunity to develop which is at least as good as and generally better than that which he had when the whole problem was "up to him" and he did his work entirely unaided.

If it were true that the workman would develop into a larger and finer man without all of this teaching, and without the help of the laws which have been formulated for doing his particular job, then it would follow that the young man who now comes to college to have the help of a teacher in mathematics, physics, chemistry, Latin, Greek, etc., would do better to study these things unaided and by himself. The only difference in the two cases is that students come to their teachers, while from the nature of the work done by the mechanic under scientific management, the teachers must go to him. What really happens is that, with the aid of the science which is invariably developed, and through the instructions from his teachers, each workman of a given intellectual capacity is enabled to do a much higher, more interesting, and finally more developing and more profitable kind of work than he was before able to do. The laborer who before was unable to do anything beyond, perhaps, shoveling and wheeling dirt from place to place, or carrying the work from one part of the shop to another, is in many cases taught to do the more elementary machinist's work, accompanied by the agreeable surroundings and the interesting variety and higher wages which go with the machinist's trade. The cheap machinist or helper, who before was able to run perhaps merely a drill press, is taught to do the more intricate and higher priced lathe and planer work, while the highly skilled and more intelligent machinists become functional foremen and teachers. And so on, right up the line.

It may seem that with scientific management there is not the same incentive for the workman to use his ingenuity in devising new and better methods of doing the work, as well as in improving his implements, that there is with the old type of management. It is true that with scientific management the workman is not allowed to use whatever implements and methods he sees fit in the daily practice of his work. Every encouragement, however, should be given him to suggest improvements, both in methods and in implements. And whenever a workman proposes an improvement, it should be the policy of the management to make a careful analysis of the new method, and if necessary conduct a series of experiments to determine accurately the relative merit of the new suggestion and of the old standard. And whenever the new method is found to be markedly superior to the old, it should be adopted as the standard for the whole establishment. The workman should be given the full credit for the improvement, and should be paid a cash premium as a reward for his ingenuity. In this way the true initiative of the workmen is better attained under scientific management than under the old individual plan.

The history of the development of scientific, management up to date, however, calls for a word of warning. The mechanism of management must not be mistaken for its essence, or underlying philosophy. Precisely the same mechanism will in one case produce disastrous results and in another the most beneficent. The same mechanism which will produce the finest results when made to serve the underlying principles of scientific management, will lead to failure and disaster if accompanied by the wrong spirit in those who are using it. Hundreds of people have already mistaken the mechanism of this system for its essence. Messrs. Gantt, Barth and the writer have presented papers to, the American Society of Mechanical Engineers on the subject of scientific management. In these papers the mechanism which is used has been described at some length. As elements of this mechanism may be cited:

Time study, with the implements and methods for properly making it.

Functional or divided foremanship and its superiority to the old-fashioned single foreman.

The standardization of all tools and implements used in the trades, and also of the acts or movements of workmen for each class of work.

The desirability of a planning room or department.

The "exception principle" in management.

The use of slide-rules and similar timesaving implements.

Instruction cards for the workman.

The task idea in management, accompanied by a large bonus for the successful performance of the task.

The "differential rate."

Mnemonic systems for classifying manufactured products as well as implements used in manufacturing.

A routing system.

Modern cost system, etc., etc.

These are, however, merely the elements or details of the mechanism of management. Scientific management, in its essence, consists of a certain philosophy, which results, as before stated, in a combination of the four great underlying principles of management:*

[*Footnote: First. The development of a true science. Second. The scientific selection of the workman. Third. His scientific education and development. Fourth. Intimate friendly cooperation between the management and the men.]

When, however the elements of this mechanism, such as time study, functional foremanship etc., are used without being accompanied by the true philosophy of management, the results are in many cases disastrous. And, unfortunately, even when men who are thoroughly in sympathy with the principles of scientific management undertake to change too rapidly from the old type to the new, without heeding the warnings of those who have had years of experience in making this change, they frequently meet with serious troubles, and sometimes with strikes, followed by failure.