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PAD190 PRINCIPLES OF PUBLIC

ADMINISTRATION

LESSON 3

THEORY OF PUBLIC ORGANIZATION

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THE OBJECTIVES OF THIS LESSONAfter attended this lecture student should be able to:-

1. Define the concept of bureaucracy.

2. Explain the Max Weber's theory of bureaucracy

3. Explain the nature of bureaucratic organization.

4. Explain strengths and limitations of bureaucratic organization.

5. Explain publid administration as a model of bureaucracy.

INTRODUCTIONThe study on the on the theories of public organization is focus on

the theory of bureaucracy as the foundation for the establishment of public organization.

The nature and characteristics of bureaucratic organization.

The strengths and limitations of bureaucratic organization.

WHAT IS BUREAUCRACY the word "bureaucracy" itself stems from

the word "bureau", used from the early 18th century in Western Europe not just to refer to a writing desk, but to an office, i.e., a workplace, where officials worked.

A bureaucracy traditionally does not create policy but, rather, enacts it. Law, policy, and regulation normally originates from a leadership, which creates the bureaucracy to put them into practice.

DEFINITION Definition: A bureaucracy is a form of

organization in which officeholders have defined positions and (usually) titles. Formal rules specify the duties of the officeholders. Personal distinctions are usually discouraged by the rules.

“ A large organisation in which people with specialised knowledge are organised into a clearly defined hierarchy of bureaus and offices, each of which has specified mission” (Rice, 2007)

WHO INTRODUCED THE CONCEPT KALR MARX (1818 –1883) - Marx's theory,

bureaucracy rarely creates new wealth by itself, but rather controls, co-ordinates and governs the production, distribution and consumption of wealth. The bureaucracy as a social stratum derives its income from the appropriation of part of the social surplus product of human labor. Wealth is appropriated by the bureaucracy by law through fees, taxes, levies, tributes, licensing etc.

• MAX WEBER (1864 –1920) - A formal, hierarchical organization with many levels in which tasks, responsibilities, and authority are delegated among individuals, offices, or departments, held together by a central administration. According to many sociologists and anthropologists, the development of bureaucratic organizations is necessary for the emergence of any modern civilization.

• According to Weber, the attributes of modern bureaucracy include its impersonality, concentration of the means of administration, a leveling effect on social and economic differences and implementation of a system of authority that is practically indestructible.

THE GENERAL PRINCIPLES OF BUREAUCRACY Clear hierarchy of authority.

Division of labour (specialised roles)

Formal rules (strict rules of discipline and control)

Merit based recruitment

Systematic salary structure

Impersonal authority

Political neutrality

Recruitment based on merit

Characteristic of Bureaucratic Model1. Division of labor

According to Weber, the manager or administrator should specialised in his or her job scopes.

2. Clear hierarchy structure

Every position of the employee in the organisation comes with responsibility and accountability.

The higher the rank, the higher the responsibility

3. Formal rules (strict rules of discipline and control)

Every employee is subject to strict rules of discipline and control in organisation

Thus, officials of organisation are expected to behave accordingly and not breach the Rules of Conduct of their organisation.

4. Systematic salary structure

Emphasised that each employee should be given a fair level of salary based on qualifications and experience.

5. Impersonal authority

Also known as remote or distant authority

Means that, an officer does not bring with him his office (power & authority)once he is on leave or on vacation.

6. Political neutrality

Free from favouring any political party

A good administrator should be neutral, so that he will not be biased in carrying out his duty in distributing the benefits (programs or projects ) of development to the people.

7. Recruitment based on merit

Recruitment / Selection is based on qualification or experience or both.

Promote open and free competition

Prospective employee is chosen based on their quality

Representative

Bureaucracy

•acts as representative of citizens. The establishment of bureaucracy based on citizens ratio (race and ethnicity) to ensure the interests of diverse groups are represented in policy formulation and implementation processes.

Neutral Bureaucr

acy

•Bureaucrats are supposed to administer the rules without bias. No one should be given preferential treatment. •Political neutrality of civil service.•Work based on policy, rules and regulations

TYPES OF BUREAUCRACY

An application of these principles has created a new form of bureaucratic organization and become an ideal type of organization in the government (Max Weber).

A bureaucratic official: is personally free and appointed to his position

on the basis of conduct .

exercises the authority delegated to him in accordance with impersonal rules, and his or her loyalty is enlisted on behalf of the faithful execution of his official duties .

appointment and job placement are dependent upon his or her technical qualifications .

administrative work is a full-time occupation .

work is rewarded by a regular salary and prospects of advancement in a lifetime career .

THE STRENGTHS OF BUREAUCRACY

Prevent misused or abused of power

Rationalized and formalized decision – making a right decision based on facts.

Clear and written records - formality

Specialization of works – increase productivity.

Increase accountability and integrity – more responsible to the job.

Equal access to government services - Fair and just treatment regardless of political ideology, race or ethnicity.

THE CRITICS AND LIMITATIONS OF BUREAUCRACY

Overspecialization – making individual officials not aware of larger consequences of their actions;

Rigidity and inertia of procedures - making decision-making slow or even impossible when facing some unusual case, and similarly delaying change, evolution and adaptation of old procedures to new circumstances;

A phenomenon of group thinking - zealotry, loyalty and lack of critical thinking regarding the organization which is perfect and always correct by definition, making the organization unable to change and realize its own mistakes and limitations;

Disregard for dissenting opinions - even when such views suit the available data better than the opinion of the majority;

As bureaucracy creates more and more rules and procedures - their complexity rises and coordination diminishes, facilitating creation of contradictory and recursive rules, as described by the saying "the bureaucracy is expanding to meet the needs of the expanding bureaucracy".

Not allowing people to use common sense - as everything must be as is written by the law.

PUBLIC ADMINISTRATION AS THE MODEL OF BUREAUCRACY

Theory of bureaucracy has created an institution of public organization.

Public administration denotes the institutions of public bureaucracy within a state and governed by bureaucratic officials.

A bureaucrat is a member of public organization working to execute public policy.

All Government servants are bureaucrats in public administration. Their position is subject to law, rules, regulations and procedures.

What You Must Focus The Bureaucracy Concept

The Characteristic

The Strength

The Weaknesses (Criticism)

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