LECTURE NO 4

Bureaucracy
PART 1
• Introduction • Evolution Of Bureaucracy • Max Weber On Bureaucracy •
Authority classification by Max Weber • Ideal Constructs of Bureaucracy
as suggested by Weber •
Criticism of Bureaucratic Model
INTRODUCTION
The origin of the term can be traced back to Vincent de Gourney who coined
the term in 1745. • The term "Bureaucracy" later on came to be used to
describe a system where the Government is run by officials, directly or
indirectly. • The evolution of the Bureaucratic Theory in the discipline of Public
Administration is the most important stage in evolution of Public
Administration as a discipline. • Bureaucracy is of the subject on which
maximum research papers exist in the field of Public Administration. •
Bureaucracy is defined as a "System of Organisation in which roles, tasks, and
relationships among people and positions are clearly defined, carefully
prescribed and controlled in accordance with formal authority and any
deviations from rules and regulations is views very seriously.
Evolution Of Bureaucracy
Peter Blau studied the rise and development of bureaucracy very closely and
has identified four conditions that promoted the historical evolution of
bureaucracy.
The coming into existence of money economy aided the development of
bureaucracy since
bureaucratic system of administration requires a stable system of taxation
which in turn requires a money economy.
• The emergence of capitalist system i.e. the system of free enterprise fostered
bureaucracy, as it created certain essential needs such as rationality, rule
orientation, objectivity, calculability etc., which only a Bureaucratic System of
Organisation could satisfy.
The development of Western ethics led to the growth of rationalism which
calls for rational investment of time and efforts to maximise their profits and
achievements.
• The increasing size of Organisations led to complex administration and hence
complex administrative problems.
MAX WEBER ON BUREAUCRACY
• The systematic study of bureaucracy began with the German Sociologist
Max
Weber, born in 1860 and unlike Taylor and Fayol, was not a
management practitioner but was a Professor of Social Science.
• Weber's most extensive and systematic discussion of administration
occurs within his sociology of domination in his book - "Economy and
Society".
• The concept of Bureaucracy emerged accidentally while he was analysing as
to where does power lie in the society i.e. his basic concern was to find answer
to the question - "Why individuals obeyedcommands and why people do as
they are told.
• In order to analyse this problem, Weber first distinguished between Power
and Authority.
• Power is the ability to force people to obey regardless of their resistance
while Authority is that where orders are voluntarily obeyed by those receiving
them i.e. Authority is a form of power which has been legitimised and people
recognise its legitimacy.
• Hence Weber classified the authority in various societies based on
legitimacy, the type of obedience and the kind of administrative staff suitable
to that kind of society.
AUTHORITY CLASSIFICATION BY MAX WEBER
Traditional Authority
• Traditional authority, according to Weber, rests on an established belief in
the sanctity of age-old traditions and in the legitimacy of the status of those
exercising authority under them.
• The leader hence derives his authority by virtue of the status that he has
inherited, and the extent of his authority is fixed by precedents and customs of
the society.
Charismatic Authority
• Charismatic Authority, according to Weber rests on devotion to the specific
and exceptional entity, heroism and exemplary character of an individual.
• It stems purely out of the personality of the leader and among the holders of
the Charisma are prophets, political leaders etc.
• There are no legal rules to govern and the authority is not bound by
precedents.
Rational Legal Authority
• In this system, legitimacy and control neither stem from the personal
qualities of the leader nor from the commitment to traditional wisdom and
authority which represents its traditional status.
• Obedience, under this system, is owed to a legally established impersonal
order.
• This system is called 'Rational' because in it the 'means' are expressly
designed to achieve certain specific 'Ends'.
Ideal Constructs of Bureaucracy as suggested by Weber
• DIVISION OF WORK
• A WELL DESIGNED HIERARCHICAL STRUCTURE
• CO-ORDINATION OF THE WORK
• STRICT RULE ORIENTATION
• RATIONALITY IN DECISION-MAKING
• THE DECISIONS ARE MADE BASED ON OBJECTIVE EVALUATION OF
THE SITUATION.
• IMPERSONALITY SHOULD BE OBSERVED.
• ANONYMITY AND NEUTRALITY IN DECISION-MAKING AND
THEIR IMPLEMENTATION
• MERIT BASED SELECTION AND PLACEMENT
• FIXED TENURE POSTING
CRITICISM OF BUREAUCRATIC MODEL
• Robert K. Merton has criticised bureaucracy for its excessive dependence on
rules, characteristics of Impersonality, Anonymity, Neutrality to values etc. are
contradictory to the very basic nature of a public service organisation where
close co-operation between the citizens and the bureaucracy is desirable.
Phillip Selznick has criticised the system of bureaucracy on the grounds of the
problems of delegation that crop up in operative stages. In the absence of
delegation, organisational decisions are unnecessarily delayed. Similarly,
excessive adherence to rules and regulations leads to the problem of 'Goal
Displacement', where the rules and regulations that are
meant to facilitate the functioning of the organisation are adhered irrespective
of the fact whether it leads to goal achievement or not.
• Gouldner, Peter Blau and Talcott Parson have pointed out a number of
dysfunctionalities associated with the application of the ideal type constructs
of the bureaucracy in, practice.
• For example, though the aim of applying the model is to bring efficiency in
the organisation, some of the ideal constructs when applied fully lead, to
inefficiency or decrease in efficiency.
• For example, rule-orientation at times leads to unnecessary delays and in a
bureaucratic organisation, in the absence of flexibility provided for in the rules
themselves, the rules are to be adhered to at all costs.
• Similarly, whenever rationality and impersonality increases beyond a point,
it also leads to unnecessary delay and client dissatisfaction.
• Weber, however, did not point out about the extent to which these ideal
constructs should be applied.
Joseph La Palambora, a political scientist, criticised Weberian model severely
for having only a very limited empirical base behind the model. According to
him Weber gave his model based on his study of the bureaucracies existing In
the Western European countries, especially France and Germany. The model
hence does not take into account the plus points and minus points of other
contemporary bureaucracies.
• The bureaucratic model of Weber has also been criticised for its closed
nature and dealing with only the structural aspects of the organisation. It
neglects an important tact that creating the same structure everywhere
without considering the environmental factors i.e. factors external to the
administrative system, is not always very successful, since the environmental
factors shape the behaviour of the personnel in the structure
• Sociologists have pointed out that there is a great deal of mismatch between
authority and responsibility in the bureaucratic model. The bureaucracy is only
internally accountable and the principle of anonymity forbids the external
accountability of the bureaucracy.
• According to Herbert Simon, since the human beings are emotional,
complete rationality in organisational decisions is not possible and Value-
orientation of individuals cannot be totally avoided. He also pointed out
several limitations to rational decision-making while propounding the
bounded-rationality model of decision making
• Fred W. Riggs, while criticising the Weberian model, points out that
Weberian model is not conducive to development. Instead, what exists in
developing countries as bureaucracy is totally different from the ideal type
model of Max Weber.
• The bureaucratic model in these countries is named by him as `SALA' Model.
• The chief characteristics of a 'SALA' model bureaucracy are Heterogeneity in
their way of functioning; excessive gap between theory (i.e. rules) and practice
which he termed as formulism; overlapping of various institutions in their
functions and duties despite the fact that they are physically separate entities;
predominance of nepotism and corruption in every walk of life including
selection to the civil services where ascriptive features of the applicant decide
his selection or rejection from the civil services in place of professional
qualification etc.
MAX WEBER: LIMITS ON BUREAUCRACY
Weber while emphasising on the necessity of bureaucracy was aware of
the fact that, the bureaucracy has inherent tendency of accumulation of
power. The sources of this power could be seen in the special knowledge,
which the official poses. In the course of his duties he acquired a great deal of
concrete
information much of it artificially restricted by ideas of confidentiality
and secrecy.
Nevertheless he was convinced that
bureaucratisation was inevitable and that bureaucrats gained power. Weber
resisted any identification of bureaucracy with rule by officials.
In order to prevent the bureaucracy from acquiring powers Weber
suggested certain mechanism for limiting the scope of systems of authority in
general and bureaucracy in particular. These mechanisms fall in to five
major categories. The categories are: (1) collegiality, (2) separation of powers,
(3) amateur of administration, (4) direct democracy, and (5) representation.
(Martin Albrow, pp.47-49). They are explained below:
COLLEGIALITY-
In a monocratic bureaucracy, Weber meant that at each stage of the
official hierarchy one person and one person only, had the
responsibility for taking a decision. This makes the bureaucracy more
powerful. To prevent this Weber suggested the principle of collegiality
involving others in the decision making process. Weber considered that
collegiality would always have an important role to play in limiting
bureaucracy. But it has disadvantages in terms of speed of decision and
attribution of responsibility.
SEPARATION OF POWERS-
Separation of powers meant dividing responsibility and functions between
two or more bodies. For any decision to emerge a compromise between them
had to be reached. This will avoid monopoly of decision by a single body or
person. Weber regarded such a system as inherently unstable. One of
the authorities was bound to have edge over the other.
AMATEUR ADMINISTRATION-
Since there is possibility of professional administration become
powerful, Weber suggested the involvement of amateur administration in
certain activities. Such men have sufficient public esteem to command and
general confidence. But this system could not measure up to the demands for
expertise which modern society made, and where the professionals assisted
amateur it is always the professional who dominated the scene.
DIRECT DEMOCRACY-
To limit the power of bureaucracy Weber suggested direct democracy, where
the officials were guided by and answerable to an assembly. Short term of
office, permanent possibility of recall was designed to serve the purpose of
direct democracy. But this system is possible only in small organisations and in
local governments.
REPRESENTATION-
Another method of limiting bureaucracy is sharing of authority of bureaucracy
with the elected representatives of the people. With this method it is possible
to control the power of the bureaucracy. But here, there is a possibility of
representatives being bureaucratised. However Weber thought that
throughthis medium there was a greater possibility of check on bureaucracy.
Through all the above means Weber wanted to limit the powers of the
bureaucracy.

Q. Max weber's concept of bureaucracy was a novel outcome.

Comment.?
Max Weber's concept of bureaucracy was indeed a groundbreaking and novel
outcome in the field of sociology and public administration. Weber, a German
sociologist and political economist, introduced the idea of bureaucracy in his
seminal work "Economy and Society" (1922). His concept revolutionized the
understanding of organizational structure and administrative systems in
modern societies. Here are several key aspects that highlight the novelty and
significance of Weber's concept of bureaucracy:
Key Aspects of Max Weber's Concept of Bureaucracy:
• Formalized Rules and Procedures:
Weber emphasized the importance of formal rules and procedures that govern
organizational operations. Bureaucracies are characterized by hierarchical
structures where authority flows from top to bottom, and rules are applied
uniformly and consistently.
• Specialization and Division of Labor:
Bureaucracies involve specialized roles and division of labor, where individuals
perform specific tasks based on their expertise. This specialization increases
efficiency and allows organizations to handle complex tasks effectively.
• Meritocratic Recruitment and Promotion:
According to Weber, bureaucracies should recruit and promote employees
based on merit and qualifications, rather than favoritism or personal
connections. This principle ensures that individuals with the necessary skills
and competence fill positions within the organization.
lmpersonal Relationships:
Bureaucracies maintain impersonal relationships between officials and clients
or citizens. Decisions are based on objective criteria and rules rather than
personal biases or preferences, promoting fairness and equality in
administrative actions.
• Hierarchy of Authority:
Weber's concept emphasizes a clear hierarchy of authority within
bureaucracies, where each level of management supervises the level below it.
This hierarchical structure ensures accountability and facilitates efficient
decision-making processes.
• Formal Record-Keeping and Communication:
Bureaucracies maintain extensive record-keeping and rely on written
communication to document decisions, actions, and policies. This practice
ensures transparency, accountability, and continuity within the organization.
• Novelty and Impact of Weber's Concept:
• Theoretical Foundation: Weber provided a systematic theoretical framework
for understanding bureaucracies as rational, efficient, and predictable
organizational structures. His work laid the foundation for subsequent studies
in organizational theory and public administration.
• Historical Context: Weber's concept emerged during a period of rapid
industrialization and urbanization, where large-scale organizations and
governments required efficient administrative systems to manage increasingly
complex tasks and societal needs.
• Global Influence: Weber's ideas on bureaucracy have had a profound global
influence, shaping administrative practices in governments, corporations, and
non-profit organizations worldwide. His principles have been adapted and
applied in various cultural, political, and organizational contexts.
• Critique and Adaptation: While praised for its efficiency and organizational
clarity, Weber's concept has also faced critiques for potentially stifling
creativity, flexibility, and responsiveness to change. Contemporary approaches
to bureaucracy often seek to balance formalized structures with agile
management practices.
Conclusion:
Max Weber's concept of bureaucracy represents a pivotal contribution to the
understanding of organizational management and public administration. By
introducing principles of formalization, specialization, meritocracy, and
hierarchy, Weber provided a blueprint for designing efficient and accountable
administrative systems. His ideas continue to influence scholarly discourse and
organizational practices, underscoring the enduring relevance and impact of
his contributions to the field of sociology and public administration.

KEYWORDS RELATED TO MAX WEBER'S

CONCEPT OF BUREAUCRACY
1. Rationalization 2. Legal-rational authority 3. Formalism 4. Hierarchical
authority 5.Impersonality 6. Administrative hierarchy 7. Division of labor 8.
Meritocratic recruitment 9. Disenchantment 10. Rational-legal bureaucracy
11.Administrative discretion
12. Rules and regulations 13. Procedural rationality 14. Administrative
efficiency 15. Administrative pathologies 16. Iron cage of rationality 17.
Instrumental rationality 18. Administrative routines 19. Administrative
inertia 20. Administrative alienation 21. Administrative oligarchy 22.
Administrative hierarchy 23. Administrative formalism 24. Administrative
procedure 25. Bureaucratic resistance 26. Bureaucratic efficiency 27.
Bureaucratic rationality 28. Bureaucratic culture 29. Bureaucratic red tape 30.
Bureaucratic accountability