DECENTRALIZATION AND INITIATIVE - TVA RETURNS TO ITS ROOTS

The Tennessee Valley Authority, a federal corporation established by C ongress in 1933, is charged with the integrated regional development o f the Tennessee Valley's resources, including flood control, navigatio n, reforestation and proper use of marginal lands, electricity generat ion, and agricultural and economic development. TVA's early leaders, e specially David E. Lilienthal and Gordon R. Clapp, articulated a doctr ine of ''grass roots democracy'' and ''decentralization'' that protect ed TVA from rival federal bureaucracies and provided greater flexibili ty and freedom in carrying out TVA's multi-purpose mission. This doctr ine also led to innovations in the professionalization of TVA's highly skilled and diverse workforce. Clapp, a recognized leader in public a dministration, promoted employee initiative, easy access to top manage ment, multi-disciplinary teamwork, labor/management collaboration, and partnerships with states and localities that took account of local ne eds and values. The development of joint cooperative councils and conf erences, along with other initiatives, were visible manifestations of this ''democratic method of administration.'' In the aftermath of Clap p's chairmanship that ended in 1954, TVA placed principal emphasis on expanding its electric power system and moved to a more traditional bu reaucratic structure of tight control, accountability, and discipline. The crisis of survival that developed in the 1980s had its roots in a growing isolation, rigidity, and decline of professional excellence t hat was an outgrowth of this new bureaucracy. The current TVA chairman , Marvin T. Runyon, is leading a recovery effort to restore TVA's comp etitiveness. This effort recalls the vision and values of ''grass root s democracy'' and ''decentralization'' espoused by Clapp and Lilientha l. Although coming to TVA with no prior experience in the public secto r, Runyon's emphasis on customer service and satisfaction, quality pro ducts, teamwork, creative problem solving, employee empowerment, and b eing ''the best'' recalls the professionalism and professionalization of the public administrators who led TVA in its early years.