Decentralization and initiative: TVA returns to its roots

The Tennessee Valley Authority, a federal corporation established by Congress in 1933, is charged with the integrated regional development of the Tennessee Valley's resources, including flood control, navigation, reforestation and proper use of marginal lands, electricity generation, and agricultural and economic development. TVA's early leaders, especially David E. Lilienthal and Gordon R. Clapp, articulated a doctrine of “grass roots democracy” and “decentralization” that protected TVA from rival federal bureaucracies and provided greater flexibility and freedom in carrying out TVA's multi-purpose mission. This doctrine also led to innovations in the professionalization of TVA' s highly skilled and diverse workforce. Clapp, a recognized leader in public administration, promoted employee initiative, easy access to top management, multi-disciplinary teamwork, labor/management collaboration, and partnerships with states and localities that took account of local needs and values. The development of joint cooperative councils and conferences, along with other initiatives, were visible manifestations of this “democratic method of administration.”

In the aftermath of Clapp's chairmanship that ended in 1954, TVA placed principal emphasis on expanding its electric power system and moved to a more traditional bureaucratic 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 that was an outgrowth of this new bureaucracy. The current TVA chairman, Marvin T. Runyon, is leading a recovery effort to restore TVA's competitiveness. This effort recalls the vision and values of “grass roots democracy” and “decentralization” espoused by Clapp and Lilienthal. Although coming to TVA with no prior experience in the public sector, Runyon's emphasis on customer service and satisfaction, quality products, teamwork, creative problem solving, employee empowerment, and being “the best” recalls the professionalism and professionalization of the public administrators who led TVA in its early years.