The problems of control within complex organizations are a direct result of the need to coordinate activities that have been broken down into subunits so that they can be performed by a group of employees. In such organizations, authority is justified on a "rational-legal" basis, and the general pattern of control is through bureaucratic rules. As bearers of authority, rules structure relationships and channel action into conformity with the organizational goals. In addition, rules serve as a means of communication. The directional and boundary functions of rules may become dysfunctional if they are interpreted as minimum standards of performance. Also, rules may cause a means-ends inversion for the organization, leading to unsatisfactory relationships and inflexibility. The means of control are inextricably associated with the structure of the organization. Improvements in organizational effectiveness and need-fulfillment of its members depend upon alterations in the structure of the organization that will facilitate change in the means of control. (DE)