BUREAUCRACYBUREAUCRACY

The BureaucracyThe Bureaucracy

•• What is Bureaucracy?What is Bureaucracy?–– A complex, hierarchically arrangedA complex, hierarchically arranged

organization composed of many smallorganization composed of many smallsubdivisions with specialized functionssubdivisions with specialized functions

–– Bureaucracy means “rule by officialdom”Bureaucracy means “rule by officialdom”–– Bureaucracy is complexBureaucracy is complex–– Bureaucracy is hierarchicalBureaucracy is hierarchical

•• What is Bureaucracy?What is Bureaucracy?–– A complex, hierarchically arrangedA complex, hierarchically arranged

organization composed of many smallorganization composed of many smallsubdivisions with specialized functionssubdivisions with specialized functions

–– Bureaucracy means “rule by officialdom”Bureaucracy means “rule by officialdom”–– Bureaucracy is complexBureaucracy is complex–– Bureaucracy is hierarchicalBureaucracy is hierarchical

The BureaucracyThe Bureaucracy

•• Functions of BureaucratsFunctions of Bureaucrats–– Implement the lawImplement the law–– Provide expertiseProvide expertise–– Provide research and information to theProvide research and information to the

PoliticiansPoliticians–– QuasiQuasi--judicial powers and responsibilitiesjudicial powers and responsibilities

•• Functions of BureaucratsFunctions of Bureaucrats–– Implement the lawImplement the law–– Provide expertiseProvide expertise–– Provide research and information to theProvide research and information to the

PoliticiansPoliticians–– QuasiQuasi--judicial powers and responsibilitiesjudicial powers and responsibilities

Max Weber & BureaucracyMax Weber & Bureaucracy

•• First to give a systematic theory ofFirst to give a systematic theory ofbureaucracybureaucracy

•• Typology of authority can help inTypology of authority can help inunderstanding Weber’s analysis ofunderstanding Weber’s analysis ofadministrative systemsadministrative systems

•• First to give a systematic theory ofFirst to give a systematic theory ofbureaucracybureaucracy

•• Typology of authority can help inTypology of authority can help inunderstanding Weber’s analysis ofunderstanding Weber’s analysis ofadministrative systemsadministrative systems

Weber’s BureaucracyWeber’s Bureaucracy

•• Weber sought to describe an ideal organisationWeber sought to describe an ideal organisation

One that would be perfectly rational andOne that would be perfectly rational andwould provide maximum efficiencywould provide maximum efficiency Weber’s bureaucratic model was aWeber’s bureaucratic model was a

hypothetical rather than factualhypothetical rather than factualdescription of how organization must bedescription of how organization must bestructuredstructured

•• Weber sought to describe an ideal organisationWeber sought to describe an ideal organisation

One that would be perfectly rational andOne that would be perfectly rational andwould provide maximum efficiencywould provide maximum efficiency Weber’s bureaucratic model was aWeber’s bureaucratic model was a

hypothetical rather than factualhypothetical rather than factualdescription of how organization must bedescription of how organization must bestructuredstructured

Weber’s Typology of AuthorityWeber’s Typology of Authority

•• TraditionalTraditional--based on traditions & customsbased on traditions & customs•• Rational legalRational legal--impersonal and formalimpersonal and formal

structuresstructures•• CharismaticCharismatic--specific and exceptionalspecific and exceptional

abilitiesabilities

Bureaucracy is a type of administrativeBureaucracy is a type of administrativestructure based on legalstructure based on legal--rational authorityrational authority

•• TraditionalTraditional--based on traditions & customsbased on traditions & customs•• Rational legalRational legal--impersonal and formalimpersonal and formal

structuresstructures•• CharismaticCharismatic--specific and exceptionalspecific and exceptional

abilitiesabilities

Bureaucracy is a type of administrativeBureaucracy is a type of administrativestructure based on legalstructure based on legal--rational authorityrational authority

Weber set out six principles for modern systems of bureaucracy,Weber set out six principles for modern systems of bureaucracy,deriving from the idea of rationalderiving from the idea of rational--legal authoritylegal authority

1. The principle of fixed and official jurisdictional areas, which are1. The principle of fixed and official jurisdictional areas, which aregenerally ordered by rules, that is by laws or administrativegenerally ordered by rules, that is by laws or administrativeregulations.regulations.

2. The principles of office hierarchy and of levels of graded authority2. The principles of office hierarchy and of levels of graded authoritymean a firmly ordered system of supermean a firmly ordered system of super-- and suband sub--ordination in whichordination in whichthere is a supervision of the lower offices by the higher ones.there is a supervision of the lower offices by the higher ones.

3. The management of the modern office is based upon written3. The management of the modern office is based upon writtendocuments (‘the files’) which are preserved. The body of officialsdocuments (‘the files’) which are preserved. The body of officialsactively engaged in ‘public’ office, along with the respectiveactively engaged in ‘public’ office, along with the respectiveapparatus of material implements and the files, make up a ‘bureau’apparatus of material implements and the files, make up a ‘bureau’…In general, bureaucracy segregates official activity as something…In general, bureaucracy segregates official activity as somethingdistinct from the sphere of private life …Public monies anddistinct from the sphere of private life …Public monies andequipment are divorced from the private property of the official.equipment are divorced from the private property of the official.

1. The principle of fixed and official jurisdictional areas, which are1. The principle of fixed and official jurisdictional areas, which aregenerally ordered by rules, that is by laws or administrativegenerally ordered by rules, that is by laws or administrativeregulations.regulations.

2. The principles of office hierarchy and of levels of graded authority2. The principles of office hierarchy and of levels of graded authoritymean a firmly ordered system of supermean a firmly ordered system of super-- and suband sub--ordination in whichordination in whichthere is a supervision of the lower offices by the higher ones.there is a supervision of the lower offices by the higher ones.

3. The management of the modern office is based upon written3. The management of the modern office is based upon writtendocuments (‘the files’) which are preserved. The body of officialsdocuments (‘the files’) which are preserved. The body of officialsactively engaged in ‘public’ office, along with the respectiveactively engaged in ‘public’ office, along with the respectiveapparatus of material implements and the files, make up a ‘bureau’apparatus of material implements and the files, make up a ‘bureau’…In general, bureaucracy segregates official activity as something…In general, bureaucracy segregates official activity as somethingdistinct from the sphere of private life …Public monies anddistinct from the sphere of private life …Public monies andequipment are divorced from the private property of the official.equipment are divorced from the private property of the official.

4. Office management, at least all4. Office management, at least all specialisedspecialised office managementoffice management –– andandsuch management is distinctly modernsuch management is distinctly modern –– usually presupposesusually presupposesthorough and expert training.thorough and expert training.

5. When the office is fully developed, official activity demands the full5. When the office is fully developed, official activity demands the fullworking capacity of the official …Formerly, in all cases, the normalworking capacity of the official …Formerly, in all cases, the normalstate of affairs was reversed: official business was discharged as astate of affairs was reversed: official business was discharged as asecondary activity.secondary activity.

6. The management of the office follows general rules, which are more6. The management of the office follows general rules, which are moreor less stable, more or less exhaustive, and which can be learned.or less stable, more or less exhaustive, and which can be learned.Knowledge of these rules represents a special technical learningKnowledge of these rules represents a special technical learningwhich the officials possess. It involves jurisprudence, orwhich the officials possess. It involves jurisprudence, oradministrative or business management.administrative or business management.

4. Office management, at least all4. Office management, at least all specialisedspecialised office managementoffice management –– andandsuch management is distinctly modernsuch management is distinctly modern –– usually presupposesusually presupposesthorough and expert training.thorough and expert training.

5. When the office is fully developed, official activity demands the full5. When the office is fully developed, official activity demands the fullworking capacity of the official …Formerly, in all cases, the normalworking capacity of the official …Formerly, in all cases, the normalstate of affairs was reversed: official business was discharged as astate of affairs was reversed: official business was discharged as asecondary activity.secondary activity.

6. The management of the office follows general rules, which are more6. The management of the office follows general rules, which are moreor less stable, more or less exhaustive, and which can be learned.or less stable, more or less exhaustive, and which can be learned.Knowledge of these rules represents a special technical learningKnowledge of these rules represents a special technical learningwhich the officials possess. It involves jurisprudence, orwhich the officials possess. It involves jurisprudence, oradministrative or business management.administrative or business management.

Weber’s Characteristics of BureaucracyWeber’s Characteristics of Bureaucracy

•• Characteristics:Characteristics:Division of labor: each person’s job is brokenDivision of labor: each person’s job is broken

down into simple, routine, and well defineddown into simple, routine, and well definedtaskstasksWell defined authority hierarchy: A multilevelWell defined authority hierarchy: A multilevel

formal structure, with a hierarchy offormal structure, with a hierarchy ofpositions, ensures that each lower office ispositions, ensures that each lower office isunder the supervision and control of a higherunder the supervision and control of a higheroneoneHigh Formalisation: dependence of rules andHigh Formalisation: dependence of rules and

procedures to ensure supervision and controlprocedures to ensure supervision and controlof a higher oneof a higher oneImpersonal nature: Sanctions are appliedImpersonal nature: Sanctions are applied

uniformly and impersonally to avoiduniformly and impersonally to avoidinvolvement with individual personalities andinvolvement with individual personalities andpersonal preferences of memberspersonal preferences of members

•• Characteristics:Characteristics:Division of labor: each person’s job is brokenDivision of labor: each person’s job is broken

down into simple, routine, and well defineddown into simple, routine, and well definedtaskstasksWell defined authority hierarchy: A multilevelWell defined authority hierarchy: A multilevel

formal structure, with a hierarchy offormal structure, with a hierarchy ofpositions, ensures that each lower office ispositions, ensures that each lower office isunder the supervision and control of a higherunder the supervision and control of a higheroneoneHigh Formalisation: dependence of rules andHigh Formalisation: dependence of rules and

procedures to ensure supervision and controlprocedures to ensure supervision and controlof a higher oneof a higher oneImpersonal nature: Sanctions are appliedImpersonal nature: Sanctions are applied

uniformly and impersonally to avoiduniformly and impersonally to avoidinvolvement with individual personalities andinvolvement with individual personalities andpersonal preferences of memberspersonal preferences of members

BureaucracyBureaucracyCharacteristics (contd.)Characteristics (contd.) Employment decisions based on merit: Selection andEmployment decisions based on merit: Selection and

promotion decisions are based on technicalpromotion decisions are based on technicalqualifications, competencies, and performance of thequalifications, competencies, and performance of thecandidatescandidatesCareer tracks for employees: Members are expectedCareer tracks for employees: Members are expected

to pursue careers in the organisation. In return forto pursue careers in the organisation. In return forcareer commitment, employees have tenure, that iscareer commitment, employees have tenure, that isthey will be retained even if they “ burn out” or ifthey will be retained even if they “ burn out” or ifthe skills become obsoletethe skills become obsoleteDistinct separation of members’ organisational andDistinct separation of members’ organisational and

personal lives: the demands and interests of personalpersonal lives: the demands and interests of personalaffairs are kept completely separate to prevent themaffairs are kept completely separate to prevent themfrom interfering with the rational impersonal conductfrom interfering with the rational impersonal conductof the organisationof the organisation

Characteristics (contd.)Characteristics (contd.) Employment decisions based on merit: Selection andEmployment decisions based on merit: Selection and

promotion decisions are based on technicalpromotion decisions are based on technicalqualifications, competencies, and performance of thequalifications, competencies, and performance of thecandidatescandidatesCareer tracks for employees: Members are expectedCareer tracks for employees: Members are expected

to pursue careers in the organisation. In return forto pursue careers in the organisation. In return forcareer commitment, employees have tenure, that iscareer commitment, employees have tenure, that isthey will be retained even if they “ burn out” or ifthey will be retained even if they “ burn out” or ifthe skills become obsoletethe skills become obsoleteDistinct separation of members’ organisational andDistinct separation of members’ organisational and

personal lives: the demands and interests of personalpersonal lives: the demands and interests of personalaffairs are kept completely separate to prevent themaffairs are kept completely separate to prevent themfrom interfering with the rational impersonal conductfrom interfering with the rational impersonal conductof the organisationof the organisation

Weber’s Characteristics of BureaucracyWeber’s Characteristics of Bureaucracy

CharacteristicsCharacteristics DescriptionDescription

Division of labourDivision of labour Fixed jurisdictional areaFixed jurisdictional area

HierarchyHierarchy Lower levels controlled and supervised byLower levels controlled and supervised byhigher levels. Vertical divisionshigher levels. Vertical divisions

RulesRules Rules & regulations (relatively stable andRules & regulations (relatively stable andexhaustive) govern decisions and actionsexhaustive) govern decisions and actions(process oriented)(process oriented)

ProfessionalismProfessionalism Selection on basis of qualifications,Selection on basis of qualifications,appointed to offices and compensated byappointed to offices and compensated bysalary. Performance measured bysalary. Performance measured byimpersonal rulesimpersonal rules

ImpersonalityImpersonality Authority is impersonal & rests with rankAuthority is impersonal & rests with rankand positionand position

CareerismCareerism Full time employment and long tenureFull time employment and long tenure--which is protected by law against arbitrarywhich is protected by law against arbitrarydismissaldismissal

Summarizing Weber’s ContributionSummarizing Weber’s Contribution Central theme of the model is standardisationCentral theme of the model is standardisation The behavior of the people in bureaucracies are preThe behavior of the people in bureaucracies are pre--

determined by standardized structure and processesdetermined by standardized structure and processes The model itself can be detected into three groups ofThe model itself can be detected into three groups of

characteristicscharacteristics1.1. Those that relate to the structure and functioning of anThose that relate to the structure and functioning of an

organizationorganization Included here are rules concerning hierarchy of offices,Included here are rules concerning hierarchy of offices,

each hierarchical level under the direction of higher oneeach hierarchical level under the direction of higher one The division of labor creates units of expertise, defines areaThe division of labor creates units of expertise, defines area

of action consistent competence of its members, assignsof action consistent competence of its members, assignsresponsibilities for carrying out these actions,responsibilities for carrying out these actions,

The written rules govern the performance of member’sThe written rules govern the performance of member’sdutiesduties

This imposition of structure and functions provide a highThis imposition of structure and functions provide a highlevel specialized expertise, coordination of roles, and controllevel specialized expertise, coordination of roles, and controlof members through standardisationof members through standardisation

Central theme of the model is standardisationCentral theme of the model is standardisation The behavior of the people in bureaucracies are preThe behavior of the people in bureaucracies are pre--

determined by standardized structure and processesdetermined by standardized structure and processes The model itself can be detected into three groups ofThe model itself can be detected into three groups of

characteristicscharacteristics1.1. Those that relate to the structure and functioning of anThose that relate to the structure and functioning of an

organizationorganization Included here are rules concerning hierarchy of offices,Included here are rules concerning hierarchy of offices,

each hierarchical level under the direction of higher oneeach hierarchical level under the direction of higher one The division of labor creates units of expertise, defines areaThe division of labor creates units of expertise, defines area

of action consistent competence of its members, assignsof action consistent competence of its members, assignsresponsibilities for carrying out these actions,responsibilities for carrying out these actions,

The written rules govern the performance of member’sThe written rules govern the performance of member’sdutiesduties

This imposition of structure and functions provide a highThis imposition of structure and functions provide a highlevel specialized expertise, coordination of roles, and controllevel specialized expertise, coordination of roles, and controlof members through standardisationof members through standardisation

Summarizing Weber’s ContributionSummarizing Weber’s Contribution

•• 2. Characteristics that deal with means2. Characteristics that deal with meansof rewarding effortof rewarding effort..Members receive salaries in relation to theirMembers receive salaries in relation to their

rank in organizationrank in organizationPromotions are based on objective criteriaPromotions are based on objective criteria

such as seniority or achievementsuch as seniority or achievementSince members are not owners, it isSince members are not owners, it is

important that there be a clear separation ofimportant that there be a clear separation oftheir private affairs from the organization’stheir private affairs from the organization’saffairsaffairsIt is expected that commitment to theIt is expected that commitment to the

organization is paramount, the position in theorganization is paramount, the position in theorganization being the employee’s sole ororganization being the employee’s sole orprimary occupationprimary occupation

•• 2. Characteristics that deal with means2. Characteristics that deal with meansof rewarding effortof rewarding effort..Members receive salaries in relation to theirMembers receive salaries in relation to their

rank in organizationrank in organizationPromotions are based on objective criteriaPromotions are based on objective criteria

such as seniority or achievementsuch as seniority or achievementSince members are not owners, it isSince members are not owners, it is

important that there be a clear separation ofimportant that there be a clear separation oftheir private affairs from the organization’stheir private affairs from the organization’saffairsaffairsIt is expected that commitment to theIt is expected that commitment to the

organization is paramount, the position in theorganization is paramount, the position in theorganization being the employee’s sole ororganization being the employee’s sole orprimary occupationprimary occupation

Summarizing Weber’s ContributionSummarizing Weber’s Contribution

•• 3.3. Characteristics that deals withCharacteristics that deals withprotection for individual membersprotection for individual membersIn return for a career commitment:In return for a career commitment:

-- members receive protection from arbitrarymembers receive protection from arbitraryactions by superiorsactions by superiors-- clear knowledge of their responsibilities andclear knowledge of their responsibilities andthe amount of authority their superior holdsthe amount of authority their superior holds-- the ability to appeal to decisions that theythe ability to appeal to decisions that theysee as unfair or outside the parameters ofsee as unfair or outside the parameters oftheir superior’s authoritytheir superior’s authority

•• 3.3. Characteristics that deals withCharacteristics that deals withprotection for individual membersprotection for individual membersIn return for a career commitment:In return for a career commitment:

-- members receive protection from arbitrarymembers receive protection from arbitraryactions by superiorsactions by superiors-- clear knowledge of their responsibilities andclear knowledge of their responsibilities andthe amount of authority their superior holdsthe amount of authority their superior holds-- the ability to appeal to decisions that theythe ability to appeal to decisions that theysee as unfair or outside the parameters ofsee as unfair or outside the parameters oftheir superior’s authoritytheir superior’s authority

Weber’s Characteristics of BureaucracyWeber’s Characteristics of Bureaucracy

CharacteristicsCharacteristics Match with Bangladesh ScenarioMatch with Bangladesh Scenario

Division of labourDivision of labour

HierarchyHierarchy

RulesRules

ProfessionalismProfessionalism

ImpersonalityImpersonality

CareerismCareerism

Positive Qualities of BureaucracyPositive Qualities of Bureaucracy Attempt to eliminate use of irrelevant criteria forAttempt to eliminate use of irrelevant criteria for

choosing employeeschoosing employees The use of tenure to protect employees againstThe use of tenure to protect employees against

arbitrary, changes in skill demands, and decliningarbitrary, changes in skill demands, and decliningabilityability

Establishment of rules and regulations to increaseEstablishment of rules and regulations to increasethe likelihood that employees will be treated fairlythe likelihood that employees will be treated fairlyto create stability over timeto create stability over time

Creation of vertical hierarchy to ensure that clearCreation of vertical hierarchy to ensure that clearlines and authority exists, that decisions are made,lines and authority exists, that decisions are made,and that accountability over decisions is maintainedand that accountability over decisions is maintained

The positive side of vertical authority often includesThe positive side of vertical authority often includesanswers to such questions as:answers to such questions as:-- to whom do I take my problems?to whom do I take my problems?

Attempt to eliminate use of irrelevant criteria forAttempt to eliminate use of irrelevant criteria forchoosing employeeschoosing employees

The use of tenure to protect employees againstThe use of tenure to protect employees againstarbitrary, changes in skill demands, and decliningarbitrary, changes in skill demands, and decliningabilityability

Establishment of rules and regulations to increaseEstablishment of rules and regulations to increasethe likelihood that employees will be treated fairlythe likelihood that employees will be treated fairlyto create stability over timeto create stability over time

Creation of vertical hierarchy to ensure that clearCreation of vertical hierarchy to ensure that clearlines and authority exists, that decisions are made,lines and authority exists, that decisions are made,and that accountability over decisions is maintainedand that accountability over decisions is maintained

The positive side of vertical authority often includesThe positive side of vertical authority often includesanswers to such questions as:answers to such questions as:-- to whom do I take my problems?to whom do I take my problems?

Positive QualitiesPositive Qualities-- how much authority does that managerhow much authority does that managerhas?has?-- whom do I have to see to get thiswhom do I have to see to get thisdecision made?decision made?

The importance of these decisions wereThe importance of these decisions wererevealed in a survey of industrial managersrevealed in a survey of industrial managers-- they were found to be in favor of morethey were found to be in favor of morerather than less, of :rather than less, of :-- clarity in lines of authority, rules, duties,clarity in lines of authority, rules, duties,specification of proceduresspecification of procedures-- these managers recognized that onlythese managers recognized that onlywhen the structure and relationships arewhen the structure and relationships areclear can authority be delegatedclear can authority be delegated

-- how much authority does that managerhow much authority does that managerhas?has?-- whom do I have to see to get thiswhom do I have to see to get thisdecision made?decision made?

The importance of these decisions wereThe importance of these decisions wererevealed in a survey of industrial managersrevealed in a survey of industrial managers-- they were found to be in favor of morethey were found to be in favor of morerather than less, of :rather than less, of :-- clarity in lines of authority, rules, duties,clarity in lines of authority, rules, duties,specification of proceduresspecification of procedures-- these managers recognized that onlythese managers recognized that onlywhen the structure and relationships arewhen the structure and relationships areclear can authority be delegatedclear can authority be delegated

Dysfunctions of BureaucracyDysfunctions of Bureaucracy

•• Bureaucracy becomes dysfunctional whenBureaucracy becomes dysfunctional whenorganisations lose their effectiveness in meetingorganisations lose their effectiveness in meetingpolicy and programme goals in an efficient andpolicy and programme goals in an efficient andresponsive fashion (dysfunctional bureaucracy)responsive fashion (dysfunctional bureaucracy)

•• Parkinson’s LawParkinson’s Law--’work expands so as to fill the time’work expands so as to fill the timeavailable for its completion’available for its completion’--individuals make theirindividuals make theirown choices as to how fast a job needs to be doneown choices as to how fast a job needs to be done

•• Peter’s PrinciplesPeter’s Principles-- ‘employees tend to be promoted to‘employees tend to be promoted totheir level of incompetence’their level of incompetence’--promotion based onpromotion based oncurrent position, hierarchy in organisations iscurrent position, hierarchy in organisations ischaracterised by incompetence and inefficiencycharacterised by incompetence and inefficiency

•• Bureaucracy becomes dysfunctional whenBureaucracy becomes dysfunctional whenorganisations lose their effectiveness in meetingorganisations lose their effectiveness in meetingpolicy and programme goals in an efficient andpolicy and programme goals in an efficient andresponsive fashion (dysfunctional bureaucracy)responsive fashion (dysfunctional bureaucracy)

•• Parkinson’s LawParkinson’s Law--’work expands so as to fill the time’work expands so as to fill the timeavailable for its completion’available for its completion’--individuals make theirindividuals make theirown choices as to how fast a job needs to be doneown choices as to how fast a job needs to be done

•• Peter’s PrinciplesPeter’s Principles-- ‘employees tend to be promoted to‘employees tend to be promoted totheir level of incompetence’their level of incompetence’--promotion based onpromotion based oncurrent position, hierarchy in organisations iscurrent position, hierarchy in organisations ischaracterised by incompetence and inefficiencycharacterised by incompetence and inefficiency

Bureaupathology & other illsBureaupathology & other ills

•• Robert Merton(1940)Robert Merton(1940)--Strict adherence to rules can causeStrict adherence to rules can causegoal displacement. Rules produces rigidity, redgoal displacement. Rules produces rigidity, red--tapismtapismand resistance to changeand resistance to change

•• Victor Thompson(1961)Victor Thompson(1961) ––as bureaucrats stress onas bureaucrats stress onimpartiality and impersonality, they may adopt arrogant,impartiality and impersonality, they may adopt arrogant,harsh and domineering attitudes towards peopleharsh and domineering attitudes towards people

•• Empire buildingEmpire building--bureaucrats recognising the importancebureaucrats recognising the importanceof an organisation seek budget growths, expand theof an organisation seek budget growths, expand thenumber of staff and control information flow to improvenumber of staff and control information flow to improveindividual and organisational powerindividual and organisational power--thus buildingthus buildingempiresempires

•• Robert Merton(1940)Robert Merton(1940)--Strict adherence to rules can causeStrict adherence to rules can causegoal displacement. Rules produces rigidity, redgoal displacement. Rules produces rigidity, red--tapismtapismand resistance to changeand resistance to change

•• Victor Thompson(1961)Victor Thompson(1961) ––as bureaucrats stress onas bureaucrats stress onimpartiality and impersonality, they may adopt arrogant,impartiality and impersonality, they may adopt arrogant,harsh and domineering attitudes towards peopleharsh and domineering attitudes towards people

•• Empire buildingEmpire building--bureaucrats recognising the importancebureaucrats recognising the importanceof an organisation seek budget growths, expand theof an organisation seek budget growths, expand thenumber of staff and control information flow to improvenumber of staff and control information flow to improveindividual and organisational powerindividual and organisational power--thus buildingthus buildingempiresempires

Wallis,Wallis, BureaucracyBureaucracy

••Bureaucracy in the developing worldBureaucracy in the developing worldhas its roots in colonialism (e.g.has its roots in colonialism (e.g.British policy of indirect rule)British policy of indirect rule)

••Bureaucracy after colonialismBureaucracy after colonialismremained unchangedremained unchanged

••Bureaucracy in the developing worldBureaucracy in the developing worldhas its roots in colonialism (e.g.has its roots in colonialism (e.g.British policy of indirect rule)British policy of indirect rule)

••Bureaucracy after colonialismBureaucracy after colonialismremained unchangedremained unchanged

•• Warren Bennis (1965)Warren Bennis (1965) ––bosses withoutbosses without(and juniors with) technical knowledge(and juniors with) technical knowledge

•• Confusing and Conflicting rulesConfusing and Conflicting rules•• An informal ‘organisation’ that subvertsAn informal ‘organisation’ that subverts

formal approachesformal approaches

•• Warren Bennis (1965)Warren Bennis (1965) ––bosses withoutbosses without(and juniors with) technical knowledge(and juniors with) technical knowledge

•• Confusing and Conflicting rulesConfusing and Conflicting rules•• An informal ‘organisation’ that subvertsAn informal ‘organisation’ that subverts

formal approachesformal approaches

•• Veblen thought that ‘trained incapacity’ ofVeblen thought that ‘trained incapacity’ ofofficials who after being thoroughly trained inofficials who after being thoroughly trained inone area finds it difficult to operate effectively inone area finds it difficult to operate effectively indifferent situationsdifferent situations

•• Hummel (1977) saw bureaucrats as truncatedHummel (1977) saw bureaucrats as truncatedindividuals who are able to understand things inindividuals who are able to understand things inonly structured terms and technical competence,only structured terms and technical competence,thus lacking humanistic valuesthus lacking humanistic values

•• Veblen thought that ‘trained incapacity’ ofVeblen thought that ‘trained incapacity’ ofofficials who after being thoroughly trained inofficials who after being thoroughly trained inone area finds it difficult to operate effectively inone area finds it difficult to operate effectively indifferent situationsdifferent situations

•• Hummel (1977) saw bureaucrats as truncatedHummel (1977) saw bureaucrats as truncatedindividuals who are able to understand things inindividuals who are able to understand things inonly structured terms and technical competence,only structured terms and technical competence,thus lacking humanistic valuesthus lacking humanistic values

Consequences of DysfunctionsConsequences of Dysfunctions•• Goal DisplacementGoal Displacement Attacked most frequently for displacement ofAttacked most frequently for displacement of

organizational goals with suborganizational goals with sub--units goalsunits goals This general theme has been packaged in aThis general theme has been packaged in a

number of formsnumber of formsa.a. According to Robert Merton the goals become moreAccording to Robert Merton the goals become more

important than the ends that they were designed toimportant than the ends that they were designed toserve, the result being goal displacement and lossserve, the result being goal displacement and lossof organizational effectivenessof organizational effectiveness

b.b. According to Philip Selznick specialisation andAccording to Philip Selznick specialisation anddifferentiation create subdifferentiation create sub--units with different goals.units with different goals.The goals of each separate subThe goals of each separate sub--unit becomesunit becomesprimary to the subprimary to the sub--unit members. This results inunit members. This results inconflicts between these subunits whereconflicts between these subunits whereachievement of subachievement of sub--unit goals become moreunit goals become moreimportant than accomplishment of organizationalimportant than accomplishment of organizationalgoalsgoals

•• Goal DisplacementGoal Displacement Attacked most frequently for displacement ofAttacked most frequently for displacement of

organizational goals with suborganizational goals with sub--units goalsunits goals This general theme has been packaged in aThis general theme has been packaged in a

number of formsnumber of formsa.a. According to Robert Merton the goals become moreAccording to Robert Merton the goals become more

important than the ends that they were designed toimportant than the ends that they were designed toserve, the result being goal displacement and lossserve, the result being goal displacement and lossof organizational effectivenessof organizational effectiveness

b.b. According to Philip Selznick specialisation andAccording to Philip Selznick specialisation anddifferentiation create subdifferentiation create sub--units with different goals.units with different goals.The goals of each separate subThe goals of each separate sub--unit becomesunit becomesprimary to the subprimary to the sub--unit members. This results inunit members. This results inconflicts between these subunits whereconflicts between these subunits whereachievement of subachievement of sub--unit goals become moreunit goals become moreimportant than accomplishment of organizationalimportant than accomplishment of organizationalgoalsgoals

Consequences of DysfunctionsConsequences of Dysfunctions•• Goal Displacement (contd.)Goal Displacement (contd.)c. A third perspective was offered by Alvin Gouldnerc. A third perspective was offered by Alvin Gouldner Proposed that rules and regulations not only defineProposed that rules and regulations not only define

unacceptable behaviors but also define minimumunacceptable behaviors but also define minimumlevels of acceptable behaviorlevels of acceptable behavior-- if organisation goals are not internalized rules andif organisation goals are not internalized rules andregulations not only define unacceptable behaviorsregulations not only define unacceptable behaviorsbut also define the minimum levels of acceptablebut also define the minimum levels of acceptablebehaviorsbehaviors-- if the organisation’s goals are not internalised andif the organisation’s goals are not internalised andmade part of the employee’s behavior, the rulesmade part of the employee’s behavior, the rulesencourage empathyencourage empathy-- people will do just do bare minimum to get bypeople will do just do bare minimum to get by-- the rules become interpreted as setting thethe rules become interpreted as setting theminimum standards for performance rather thanminimum standards for performance rather thanidentifying unacceptable behavioridentifying unacceptable behavior

•• Goal Displacement (contd.)Goal Displacement (contd.)c. A third perspective was offered by Alvin Gouldnerc. A third perspective was offered by Alvin Gouldner Proposed that rules and regulations not only defineProposed that rules and regulations not only define

unacceptable behaviors but also define minimumunacceptable behaviors but also define minimumlevels of acceptable behaviorlevels of acceptable behavior-- if organisation goals are not internalized rules andif organisation goals are not internalized rules andregulations not only define unacceptable behaviorsregulations not only define unacceptable behaviorsbut also define the minimum levels of acceptablebut also define the minimum levels of acceptablebehaviorsbehaviors-- if the organisation’s goals are not internalised andif the organisation’s goals are not internalised andmade part of the employee’s behavior, the rulesmade part of the employee’s behavior, the rulesencourage empathyencourage empathy-- people will do just do bare minimum to get bypeople will do just do bare minimum to get by-- the rules become interpreted as setting thethe rules become interpreted as setting theminimum standards for performance rather thanminimum standards for performance rather thanidentifying unacceptable behavioridentifying unacceptable behavior

Consequences of DysfunctionsConsequences of Dysfunctions•• Goal Displacement (contd.)Goal Displacement (contd.)d. Thompson sees the highly formalizedd. Thompson sees the highly formalized

bureaucracy as creating insecurities in thosebureaucracy as creating insecurities in thosein authority that leads to what he calls lessin authority that leads to what he calls lessbureaucratic behaviorbureaucratic behavior Decision makers use adherence to riles toDecision makers use adherence to riles to

protect themselves from making an errorsprotect themselves from making an errorsInstead of high formalization facilitatingInstead of high formalization facilitating

decision making, the rules and regulationsdecision making, the rules and regulationsprovide protection to hide behindprovide protection to hide behindPersons in high hierarchical positions becomePersons in high hierarchical positions become

increasingly dependent on lower levelincreasingly dependent on lower levelspecialists for achievement of organizationalspecialists for achievement of organizationalgoals, they tend to introduce more and moregoals, they tend to introduce more and morerules to protect themselves against thisrules to protect themselves against thisdependencydependency

•• Goal Displacement (contd.)Goal Displacement (contd.)d. Thompson sees the highly formalizedd. Thompson sees the highly formalized

bureaucracy as creating insecurities in thosebureaucracy as creating insecurities in thosein authority that leads to what he calls lessin authority that leads to what he calls lessbureaucratic behaviorbureaucratic behavior Decision makers use adherence to riles toDecision makers use adherence to riles to

protect themselves from making an errorsprotect themselves from making an errorsInstead of high formalization facilitatingInstead of high formalization facilitating

decision making, the rules and regulationsdecision making, the rules and regulationsprovide protection to hide behindprovide protection to hide behindPersons in high hierarchical positions becomePersons in high hierarchical positions become

increasingly dependent on lower levelincreasingly dependent on lower levelspecialists for achievement of organizationalspecialists for achievement of organizationalgoals, they tend to introduce more and moregoals, they tend to introduce more and morerules to protect themselves against thisrules to protect themselves against thisdependencydependency

Consequences of DysfunctionsConsequences of Dysfunctions•• Inappropriate applications of rules andInappropriate applications of rules and

regulationsregulations::Applying formalised rules and procedures inApplying formalised rules and procedures in

inappropriate situationsinappropriate situations-- responding to unique situation as it wereresponding to unique situation as it wereroutine resulting in dysfunctionalroutine resulting in dysfunctionalconsequencesconsequences Over time bureaucracies breed such devotionOver time bureaucracies breed such devotion

to rules that members blindly repeatto rules that members blindly repeatdecisions and actions that they have madedecisions and actions that they have madenumber of times before, unaware thatnumber of times before, unaware thatconditions have changedconditions have changed

•• Inappropriate applications of rules andInappropriate applications of rules andregulationsregulations::Applying formalised rules and procedures inApplying formalised rules and procedures in

inappropriate situationsinappropriate situations-- responding to unique situation as it wereresponding to unique situation as it wereroutine resulting in dysfunctionalroutine resulting in dysfunctionalconsequencesconsequences Over time bureaucracies breed such devotionOver time bureaucracies breed such devotion

to rules that members blindly repeatto rules that members blindly repeatdecisions and actions that they have madedecisions and actions that they have madenumber of times before, unaware thatnumber of times before, unaware thatconditions have changedconditions have changed

Consequences of DysfunctionsConsequences of Dysfunctions•• Employee Alienation:Employee Alienation: Members perceive impersonality of the organizationMembers perceive impersonality of the organization

as creating distance between them and workas creating distance between them and work-- as a “ cog in the wheel” it is frequently difficult toas a “ cog in the wheel” it is frequently difficult tofeel committed in the organizationfeel committed in the organizationHigh specialisation further reinforces one’s feeling ofHigh specialisation further reinforces one’s feeling of

being irrelevant, routine activities can be easilybeing irrelevant, routine activities can be easilylearned by others , making employees feellearned by others , making employees feelinterchangeable and powerlessinterchangeable and powerless

•• Concentration of power:Concentration of power: It is a fact that bureaucracies generates enormousIt is a fact that bureaucracies generates enormous

power concentrated in the hands of fewpower concentrated in the hands of few If one feels this as undesirable or counter to theIf one feels this as undesirable or counter to the

values of democratic society , it will be attributedvalues of democratic society , it will be attributedwith negative consequenceswith negative consequences

•• Employee Alienation:Employee Alienation: Members perceive impersonality of the organizationMembers perceive impersonality of the organization

as creating distance between them and workas creating distance between them and work-- as a “ cog in the wheel” it is frequently difficult toas a “ cog in the wheel” it is frequently difficult tofeel committed in the organizationfeel committed in the organizationHigh specialisation further reinforces one’s feeling ofHigh specialisation further reinforces one’s feeling of

being irrelevant, routine activities can be easilybeing irrelevant, routine activities can be easilylearned by others , making employees feellearned by others , making employees feelinterchangeable and powerlessinterchangeable and powerless

•• Concentration of power:Concentration of power: It is a fact that bureaucracies generates enormousIt is a fact that bureaucracies generates enormous

power concentrated in the hands of fewpower concentrated in the hands of few If one feels this as undesirable or counter to theIf one feels this as undesirable or counter to the

values of democratic society , it will be attributedvalues of democratic society , it will be attributedwith negative consequenceswith negative consequences

Consequences of DysfunctionsConsequences of Dysfunctions•• Nonmember FrustrationNonmember Frustration:: Clients and customers of bureaucracies mustClients and customers of bureaucracies must

tolerate the hassle created by bureaucraciestolerate the hassle created by bureaucracies If the bureaucracy is a business firm withIf the bureaucracy is a business firm with

viable customers, one can always take itsviable customers, one can always take itsbusiness some where else, if it fails to satisfybusiness some where else, if it fails to satisfyits needsits needs-- but reality is that in all probability, thebut reality is that in all probability, thecompetition may also use the same formcompetition may also use the same formIf the organization is a governmental agency,If the organization is a governmental agency,

or a regulated monopoly, one must deal withor a regulated monopoly, one must deal withit on their own termsit on their own terms

•• Nonmember FrustrationNonmember Frustration:: Clients and customers of bureaucracies mustClients and customers of bureaucracies must

tolerate the hassle created by bureaucraciestolerate the hassle created by bureaucracies If the bureaucracy is a business firm withIf the bureaucracy is a business firm with

viable customers, one can always take itsviable customers, one can always take itsbusiness some where else, if it fails to satisfybusiness some where else, if it fails to satisfyits needsits needs-- but reality is that in all probability, thebut reality is that in all probability, thecompetition may also use the same formcompetition may also use the same formIf the organization is a governmental agency,If the organization is a governmental agency,

or a regulated monopoly, one must deal withor a regulated monopoly, one must deal withit on their own termsit on their own terms

Has Bureaucracy become redundant??Has Bureaucracy become redundant??

•• There are two positions regarding thisThere are two positions regarding thisviewview

Bureaucracy served well at time, butBureaucracy served well at time, butthose days are gone. Bureaucracy isthose days are gone. Bureaucracy isgrasping its last breath.grasping its last breath.

Bureaucracy is alive and well as it is stillBureaucracy is alive and well as it is stillthe most efficient way to organisethe most efficient way to organiseactivitiesactivities

•• There are two positions regarding thisThere are two positions regarding thisviewview

Bureaucracy served well at time, butBureaucracy served well at time, butthose days are gone. Bureaucracy isthose days are gone. Bureaucracy isgrasping its last breath.grasping its last breath.

Bureaucracy is alive and well as it is stillBureaucracy is alive and well as it is stillthe most efficient way to organisethe most efficient way to organiseactivitiesactivities

The demise of BureaucracyThe demise of Bureaucracy•• This argument was presented by social psychologist WarrenThis argument was presented by social psychologist Warren

Bennis by saying that:Bennis by saying that: Every age develops an organisational form, and bureaucraticEvery age develops an organisational form, and bureaucratic

form dominated the latter part of nineteenth century and earlyform dominated the latter part of nineteenth century and earlypart of twentieth centurypart of twentieth centuryThe bureaucratic model was developed as a personalThe bureaucratic model was developed as a personal

subjugation, nepotism, and the capricious and subjectivesubjugation, nepotism, and the capricious and subjectivejudgments that passed for acceptable managerial practices ofjudgments that passed for acceptable managerial practices ofearly days of the industrial revolutionearly days of the industrial revolutionBureaucracy emerged out of the need by organisation for orderBureaucracy emerged out of the need by organisation for order

and precision and demand of workers for impartial treatmentand precision and demand of workers for impartial treatmentToday’s conditions are inconsistent with those values andToday’s conditions are inconsistent with those values and

demandsdemandsAt least four conditions are direct threat to BureaucracyAt least four conditions are direct threat to Bureaucracy

•• This argument was presented by social psychologist WarrenThis argument was presented by social psychologist WarrenBennis by saying that:Bennis by saying that: Every age develops an organisational form, and bureaucraticEvery age develops an organisational form, and bureaucratic

form dominated the latter part of nineteenth century and earlyform dominated the latter part of nineteenth century and earlypart of twentieth centurypart of twentieth centuryThe bureaucratic model was developed as a personalThe bureaucratic model was developed as a personal

subjugation, nepotism, and the capricious and subjectivesubjugation, nepotism, and the capricious and subjectivejudgments that passed for acceptable managerial practices ofjudgments that passed for acceptable managerial practices ofearly days of the industrial revolutionearly days of the industrial revolutionBureaucracy emerged out of the need by organisation for orderBureaucracy emerged out of the need by organisation for order

and precision and demand of workers for impartial treatmentand precision and demand of workers for impartial treatmentToday’s conditions are inconsistent with those values andToday’s conditions are inconsistent with those values and

demandsdemandsAt least four conditions are direct threat to BureaucracyAt least four conditions are direct threat to Bureaucracy

The demise of BureaucracyThe demise of Bureaucracy1.1. Rapid and unexpected changeRapid and unexpected change Bureaucracy strength lies in its capacity to manageBureaucracy strength lies in its capacity to manage

efficiently routine and predictable activitiesefficiently routine and predictable activities With rapid changes in the environment it finds noWith rapid changes in the environment it finds no

placeplace2.2. Growth in size:Growth in size: In theory there is no natural limit to the height ofIn theory there is no natural limit to the height of

bureaucratic pyramidbureaucratic pyramid In practice the element of complexity is invariablyIn practice the element of complexity is invariably

introduced with constant increase in sizeintroduced with constant increase in size Increased administrative overhead, tighter controls,Increased administrative overhead, tighter controls,

greater impersonality, outmoded rules are allgreater impersonality, outmoded rules are allexamples of what happens in bureaucracy whenexamples of what happens in bureaucracy whensize increasessize increases

These obstacles hinder organisational growth inThese obstacles hinder organisational growth inbureaucratic formbureaucratic form

1.1. Rapid and unexpected changeRapid and unexpected change Bureaucracy strength lies in its capacity to manageBureaucracy strength lies in its capacity to manage

efficiently routine and predictable activitiesefficiently routine and predictable activities With rapid changes in the environment it finds noWith rapid changes in the environment it finds no

placeplace2.2. Growth in size:Growth in size: In theory there is no natural limit to the height ofIn theory there is no natural limit to the height of

bureaucratic pyramidbureaucratic pyramid In practice the element of complexity is invariablyIn practice the element of complexity is invariably

introduced with constant increase in sizeintroduced with constant increase in size Increased administrative overhead, tighter controls,Increased administrative overhead, tighter controls,

greater impersonality, outmoded rules are allgreater impersonality, outmoded rules are allexamples of what happens in bureaucracy whenexamples of what happens in bureaucracy whensize increasessize increases

These obstacles hinder organisational growth inThese obstacles hinder organisational growth inbureaucratic formbureaucratic form

The demise of BureaucracyThe demise of Bureaucracy3.3. Increasing Diversity:Increasing Diversity: Today’s activities require persons of very diverse, highlyToday’s activities require persons of very diverse, highly

specialized, competencespecialized, competence Hurried growth, rapid changes, and increased specialisation areHurried growth, rapid changes, and increased specialisation are

incompatible wit bureaucracy well defined chain of command,incompatible wit bureaucracy well defined chain of command,rigid rules and procedure, and impersonalityrigid rules and procedure, and impersonality

44. Change in managerial behavior. Change in managerial behavior Managers are under going a subtle and perceptible change inManagers are under going a subtle and perceptible change in

philosophy. These changes are undermining the ideology thatphilosophy. These changes are undermining the ideology thatsupported bureaucracysupported bureaucracy

a.a. A new concept of human beings based on increased knowledgeA new concept of human beings based on increased knowledgeof their complex and shifting needs which replaces an overof their complex and shifting needs which replaces an oversimplified, innocent, push button idea of men and womansimplified, innocent, push button idea of men and woman

b.b. A new concept of power, based on collaboration and reasonA new concept of power, based on collaboration and reasonwhich replaces a model of power based on coercion and threatwhich replaces a model of power based on coercion and threat

c.c. A new concept of organizational values based on humanistic,A new concept of organizational values based on humanistic,democratic ideals which replaces the depersonalizeddemocratic ideals which replaces the depersonalizedmechanistic values of bureaucracymechanistic values of bureaucracy

3.3. Increasing Diversity:Increasing Diversity: Today’s activities require persons of very diverse, highlyToday’s activities require persons of very diverse, highly

specialized, competencespecialized, competence Hurried growth, rapid changes, and increased specialisation areHurried growth, rapid changes, and increased specialisation are

incompatible wit bureaucracy well defined chain of command,incompatible wit bureaucracy well defined chain of command,rigid rules and procedure, and impersonalityrigid rules and procedure, and impersonality

44. Change in managerial behavior. Change in managerial behavior Managers are under going a subtle and perceptible change inManagers are under going a subtle and perceptible change in

philosophy. These changes are undermining the ideology thatphilosophy. These changes are undermining the ideology thatsupported bureaucracysupported bureaucracy

a.a. A new concept of human beings based on increased knowledgeA new concept of human beings based on increased knowledgeof their complex and shifting needs which replaces an overof their complex and shifting needs which replaces an oversimplified, innocent, push button idea of men and womansimplified, innocent, push button idea of men and woman

b.b. A new concept of power, based on collaboration and reasonA new concept of power, based on collaboration and reasonwhich replaces a model of power based on coercion and threatwhich replaces a model of power based on coercion and threat

c.c. A new concept of organizational values based on humanistic,A new concept of organizational values based on humanistic,democratic ideals which replaces the depersonalizeddemocratic ideals which replaces the depersonalizedmechanistic values of bureaucracymechanistic values of bureaucracy

The Other View of BureaucracyThe Other View of Bureaucracy

Robert Miewald ( 1970) has a different view :Robert Miewald ( 1970) has a different view : His major contention is that bureaucracy can adaptHis major contention is that bureaucracy can adapt

to changing conditionsto changing conditions Weber never meant that bureaucracy characteristicsWeber never meant that bureaucracy characteristics

to endure for eternityto endure for eternityWeber’s major contribution was to create a rationalWeber’s major contribution was to create a rational

and efficient formand efficient formWhatever form is required to sustain rationality andWhatever form is required to sustain rationality and

efficiency result in bureaucracyefficiency result in bureaucracyThe development of professional bureaucracy is aThe development of professional bureaucracy is a

perfect example of bureaucracy characteristics beingperfect example of bureaucracy characteristics beingmodified to represent the most rational and efficientmodified to represent the most rational and efficientway to structure knowledge dominated organizationsway to structure knowledge dominated organizations

Robert Miewald ( 1970) has a different view :Robert Miewald ( 1970) has a different view : His major contention is that bureaucracy can adaptHis major contention is that bureaucracy can adapt

to changing conditionsto changing conditions Weber never meant that bureaucracy characteristicsWeber never meant that bureaucracy characteristics

to endure for eternityto endure for eternityWeber’s major contribution was to create a rationalWeber’s major contribution was to create a rational

and efficient formand efficient formWhatever form is required to sustain rationality andWhatever form is required to sustain rationality and

efficiency result in bureaucracyefficiency result in bureaucracyThe development of professional bureaucracy is aThe development of professional bureaucracy is a

perfect example of bureaucracy characteristics beingperfect example of bureaucracy characteristics beingmodified to represent the most rational and efficientmodified to represent the most rational and efficientway to structure knowledge dominated organizationsway to structure knowledge dominated organizations

However, Bureaucracies are Every whereHowever, Bureaucracies are Every where

Despite the dysfunctions of bureaucratic form,Despite the dysfunctions of bureaucratic form,bureaucracy is still therebureaucracy is still there

Number of possible explanations are:Number of possible explanations are:1.1. It works:It works: Not taking into consideration the contingency factors thatNot taking into consideration the contingency factors that

predict nonpredict non--bureaucratic structure, the fact is that it worksbureaucratic structure, the fact is that it works Regardless of technology, environment. etc., bureaucraciesRegardless of technology, environment. etc., bureaucracies

are effective in wide range of organized activities:are effective in wide range of organized activities:manufacturing, service firms, hospitals, schools, universities,manufacturing, service firms, hospitals, schools, universities,military voluntary firmsmilitary voluntary firms

2.2. Large size prevailsLarge size prevails Bureaucracy is efficient with large sizeBureaucracy is efficient with large size Small organizations and their non bureaucratic structures areSmall organizations and their non bureaucratic structures are

more likely to fail over time, small organizations may comemore likely to fail over time, small organizations may comeand go but bureaucracies stayand go but bureaucracies stay

Size is a dominant criterion determining structure thereforeSize is a dominant criterion determining structure thereforeincreased size may cause bureaucracyincreased size may cause bureaucracy

Despite the dysfunctions of bureaucratic form,Despite the dysfunctions of bureaucratic form,bureaucracy is still therebureaucracy is still there

Number of possible explanations are:Number of possible explanations are:1.1. It works:It works: Not taking into consideration the contingency factors thatNot taking into consideration the contingency factors that

predict nonpredict non--bureaucratic structure, the fact is that it worksbureaucratic structure, the fact is that it works Regardless of technology, environment. etc., bureaucraciesRegardless of technology, environment. etc., bureaucracies

are effective in wide range of organized activities:are effective in wide range of organized activities:manufacturing, service firms, hospitals, schools, universities,manufacturing, service firms, hospitals, schools, universities,military voluntary firmsmilitary voluntary firms

2.2. Large size prevailsLarge size prevails Bureaucracy is efficient with large sizeBureaucracy is efficient with large size Small organizations and their non bureaucratic structures areSmall organizations and their non bureaucratic structures are

more likely to fail over time, small organizations may comemore likely to fail over time, small organizations may comeand go but bureaucracies stayand go but bureaucracies stay

Size is a dominant criterion determining structure thereforeSize is a dominant criterion determining structure thereforeincreased size may cause bureaucracyincreased size may cause bureaucracy

However, Bureaucracies are Every whereHowever, Bureaucracies are Every where

3. Natural selection favors bureaucracy3. Natural selection favors bureaucracyNatural selection thesis can be used to to explain the rise andNatural selection thesis can be used to to explain the rise and

proliferation of bureaucraciesproliferation of bureaucraciesThere are many types of organizations, though they differ, theyThere are many types of organizations, though they differ, they

all retain certain design elements because these elements areall retain certain design elements because these elements areinherently more efficient and able to compete more efficientlyinherently more efficient and able to compete more efficientlyBureaucracy structural features are selectively retained becauseBureaucracy structural features are selectively retained because

they achieve reinforcing consequence, while non bureaucraticthey achieve reinforcing consequence, while non bureaucraticfeatures are selectively eliminatedfeatures are selectively eliminatedOnce proven to be efficient, bureaucracies than force their formOnce proven to be efficient, bureaucracies than force their form

on other organizations in their environmenton other organizations in their environmentThose organizations that fail to adopt this design will be drivenThose organizations that fail to adopt this design will be driven

out in competition for resourcesout in competition for resources So bureaucratic form will eventually dominate because thisSo bureaucratic form will eventually dominate because this

design tends to be more efficient and it drives out organizationdesign tends to be more efficient and it drives out organizationthat uses any other formthat uses any other form

3. Natural selection favors bureaucracy3. Natural selection favors bureaucracyNatural selection thesis can be used to to explain the rise andNatural selection thesis can be used to to explain the rise and

proliferation of bureaucraciesproliferation of bureaucraciesThere are many types of organizations, though they differ, theyThere are many types of organizations, though they differ, they

all retain certain design elements because these elements areall retain certain design elements because these elements areinherently more efficient and able to compete more efficientlyinherently more efficient and able to compete more efficientlyBureaucracy structural features are selectively retained becauseBureaucracy structural features are selectively retained because

they achieve reinforcing consequence, while non bureaucraticthey achieve reinforcing consequence, while non bureaucraticfeatures are selectively eliminatedfeatures are selectively eliminatedOnce proven to be efficient, bureaucracies than force their formOnce proven to be efficient, bureaucracies than force their form

on other organizations in their environmenton other organizations in their environmentThose organizations that fail to adopt this design will be drivenThose organizations that fail to adopt this design will be driven

out in competition for resourcesout in competition for resources So bureaucratic form will eventually dominate because thisSo bureaucratic form will eventually dominate because this

design tends to be more efficient and it drives out organizationdesign tends to be more efficient and it drives out organizationthat uses any other formthat uses any other form

However, Bureaucracies are Every whereHowever, Bureaucracies are Every where

4. Societal values are unchanging4. Societal values are unchanging Developed societies favor order and regimentationDeveloped societies favor order and regimentation Developed societies have traditionally been goal orientedDeveloped societies have traditionally been goal oriented

and comfortable with authoritarian structuresand comfortable with authoritarian structures Employees in organisations look with disfavor on jobsEmployees in organisations look with disfavor on jobs

that are ambiguous and where responsibilities are vaguethat are ambiguous and where responsibilities are vague Bureaucracy favors values of order and regimentationBureaucracy favors values of order and regimentation5. Environmental turbulence is exaggerated5. Environmental turbulence is exaggerateda.a. Changes are no more dynamic now than at any otherChanges are no more dynamic now than at any other

time in historytime in historyb.b. The impact of uncertainties in the environment on theThe impact of uncertainties in the environment on the

organisation are substantially reduced as a result oforganisation are substantially reduced as a result ofmanagerial strategiesmanagerial strategies

4. Societal values are unchanging4. Societal values are unchanging Developed societies favor order and regimentationDeveloped societies favor order and regimentation Developed societies have traditionally been goal orientedDeveloped societies have traditionally been goal oriented

and comfortable with authoritarian structuresand comfortable with authoritarian structures Employees in organisations look with disfavor on jobsEmployees in organisations look with disfavor on jobs

that are ambiguous and where responsibilities are vaguethat are ambiguous and where responsibilities are vague Bureaucracy favors values of order and regimentationBureaucracy favors values of order and regimentation5. Environmental turbulence is exaggerated5. Environmental turbulence is exaggerateda.a. Changes are no more dynamic now than at any otherChanges are no more dynamic now than at any other

time in historytime in historyb.b. The impact of uncertainties in the environment on theThe impact of uncertainties in the environment on the

organisation are substantially reduced as a result oforganisation are substantially reduced as a result ofmanagerial strategiesmanagerial strategies

One Can’t Ignore the Obvious: BureaucraciesOne Can’t Ignore the Obvious: Bureaucraciesare Every whereare Every where6. The professional bureaucracy has emerged6. The professional bureaucracy has emerged The professional bureaucracy provides theThe professional bureaucracy provides the

same degree of standardization as Weber’ssame degree of standardization as Weber’smachine bureaucracymachine bureaucracyThe increased need for technical expertiseThe increased need for technical expertise

and the rapid increase of knowledge basedand the rapid increase of knowledge basedindustries has been handled nearly byindustries has been handled nearly byprofessional bureaucracyprofessional bureaucracyThe bureaucratic form has demonstrated theThe bureaucratic form has demonstrated the

ability to adjust to its greatest threatability to adjust to its greatest threat ––knowledge revolution by modifying itselfknowledge revolution by modifying itselfThe goal of standardization has been provenThe goal of standardization has been proven

to be achievable by more than one pathto be achievable by more than one path

6. The professional bureaucracy has emerged6. The professional bureaucracy has emerged The professional bureaucracy provides theThe professional bureaucracy provides the

same degree of standardization as Weber’ssame degree of standardization as Weber’smachine bureaucracymachine bureaucracyThe increased need for technical expertiseThe increased need for technical expertise

and the rapid increase of knowledge basedand the rapid increase of knowledge basedindustries has been handled nearly byindustries has been handled nearly byprofessional bureaucracyprofessional bureaucracyThe bureaucratic form has demonstrated theThe bureaucratic form has demonstrated the

ability to adjust to its greatest threatability to adjust to its greatest threat ––knowledge revolution by modifying itselfknowledge revolution by modifying itselfThe goal of standardization has been provenThe goal of standardization has been proven

to be achievable by more than one pathto be achievable by more than one path

However, Bureaucracies are Every whereHowever, Bureaucracies are Every where

7. Bureaucracy maintains control7. Bureaucracy maintains control High standardization coupled with centralized powerHigh standardization coupled with centralized power

in hands of dominant coalition is desired by those inin hands of dominant coalition is desired by those inpowerpower Bureaucracy meets that endBureaucracy meets that end From the powerFrom the power--control perspective one could predictcontrol perspective one could predict

that those in power would prefer bureaucracythat those in power would prefer bureaucracyConsistent with this observation that moderateConsistent with this observation that moderate

degree of routineness pervades all organizationsdegree of routineness pervades all organizations Since technology is chosen it is logical to concludeSince technology is chosen it is logical to conclude

that those in power will chose technology and athat those in power will chose technology and amatching structural form to maintain and enhancematching structural form to maintain and enhancetheir controltheir control

7. Bureaucracy maintains control7. Bureaucracy maintains control High standardization coupled with centralized powerHigh standardization coupled with centralized power

in hands of dominant coalition is desired by those inin hands of dominant coalition is desired by those inpowerpower Bureaucracy meets that endBureaucracy meets that end From the powerFrom the power--control perspective one could predictcontrol perspective one could predict

that those in power would prefer bureaucracythat those in power would prefer bureaucracyConsistent with this observation that moderateConsistent with this observation that moderate

degree of routineness pervades all organizationsdegree of routineness pervades all organizations Since technology is chosen it is logical to concludeSince technology is chosen it is logical to conclude

that those in power will chose technology and athat those in power will chose technology and amatching structural form to maintain and enhancematching structural form to maintain and enhancetheir controltheir control

HydenHyden et alet al in their study of Governance Indicatorsin their study of Governance Indicatorsused the following questions to measure theused the following questions to measure theeffectiveness of Bureaucracy:effectiveness of Bureaucracy:

•• 1.1. To what extent are higher civil servants a part of theTo what extent are higher civil servants a part of thepolicypolicy--making process? (the influence indicator)making process? (the influence indicator)

•• 2. To what extent is there a merit2. To what extent is there a merit--based system forbased system forrecruitment into the civil service? (the meritocracyrecruitment into the civil service? (the meritocracyindicator.)indicator.)

•• 3. To what extent are civil servants accountable for their3. To what extent are civil servants accountable for theiractions? (the accountability indicator)actions? (the accountability indicator)

•• 4. To what extent are there clear decision4. To what extent are there clear decision--makingmakingprocesses in the civil service? (the transparency indicator)processes in the civil service? (the transparency indicator)

•• 5. To what extent is there equal access to public services?5. To what extent is there equal access to public services?( the access indicator)( the access indicator)

•• 1.1. To what extent are higher civil servants a part of theTo what extent are higher civil servants a part of thepolicypolicy--making process? (the influence indicator)making process? (the influence indicator)

•• 2. To what extent is there a merit2. To what extent is there a merit--based system forbased system forrecruitment into the civil service? (the meritocracyrecruitment into the civil service? (the meritocracyindicator.)indicator.)

•• 3. To what extent are civil servants accountable for their3. To what extent are civil servants accountable for theiractions? (the accountability indicator)actions? (the accountability indicator)

•• 4. To what extent are there clear decision4. To what extent are there clear decision--makingmakingprocesses in the civil service? (the transparency indicator)processes in the civil service? (the transparency indicator)

•• 5. To what extent is there equal access to public services?5. To what extent is there equal access to public services?( the access indicator)( the access indicator)

Bureaucracy & DevelopmentBureaucracy & Development•• Bureaucracy is a vitally important instrument ofBureaucracy is a vitally important instrument of

development. It’s not good or bad per se; desirabledevelopment. It’s not good or bad per se; desirableoutcomes are possible with appropriate policies andoutcomes are possible with appropriate policies andactions (Turner,actions (Turner, EsmanEsman).).

•• Bureaucracy is a particular set of solutions forBureaucracy is a particular set of solutions forexpected problems that political relationships faceexpected problems that political relationships face(Schaffer). Elements include hierarchy,(Schaffer). Elements include hierarchy,differentiation, and qualification (Heady).differentiation, and qualification (Heady).

•• Review and critique of Weber’s bureaucratic modelReview and critique of Weber’s bureaucratic model(Wallis).(Wallis).

•• Bureaucracy is a vitally important instrument ofBureaucracy is a vitally important instrument ofdevelopment. It’s not good or bad per se; desirabledevelopment. It’s not good or bad per se; desirableoutcomes are possible with appropriate policies andoutcomes are possible with appropriate policies andactions (Turner,actions (Turner, EsmanEsman).).

•• Bureaucracy is a particular set of solutions forBureaucracy is a particular set of solutions forexpected problems that political relationships faceexpected problems that political relationships face(Schaffer). Elements include hierarchy,(Schaffer). Elements include hierarchy,differentiation, and qualification (Heady).differentiation, and qualification (Heady).

•• Review and critique of Weber’s bureaucratic modelReview and critique of Weber’s bureaucratic model(Wallis).(Wallis).

Bureaucracy & DevelopmentBureaucracy & Development••Guy Gran criticizes bureaucratic governanceGuy Gran criticizes bureaucratic governance

and current development strategies becauseand current development strategies becausethey are based on neoliberal principles. Inthey are based on neoliberal principles. Inaddition, bureaucracies are topaddition, bureaucracies are top--down anddown andworkers are separated from their clientsworkers are separated from their clients

•• Staudt argues that bureaucracy can be madeStaudt argues that bureaucracy can be mademore manageable by increasingmore manageable by increasingaccountability within organizations and withaccountability within organizations and withthe publicthe public

••Guy Gran criticizes bureaucratic governanceGuy Gran criticizes bureaucratic governanceand current development strategies becauseand current development strategies becausethey are based on neoliberal principles. Inthey are based on neoliberal principles. Inaddition, bureaucracies are topaddition, bureaucracies are top--down anddown andworkers are separated from their clientsworkers are separated from their clients

•• Staudt argues that bureaucracy can be madeStaudt argues that bureaucracy can be mademore manageable by increasingmore manageable by increasingaccountability within organizations and withaccountability within organizations and withthe publicthe public

•• The civil service has played a strong roleThe civil service has played a strong rolein fostering development process in manyin fostering development process in manydeveloping countries ( SE Asia)developing countries ( SE Asia)

•• Bureaucratic process BureaucraticBureaucratic process BureaucraticPerformancePerformance SocioSocio--EconomicEconomicDevelopmentDevelopment

•• The civil service has played a strong roleThe civil service has played a strong rolein fostering development process in manyin fostering development process in manydeveloping countries ( SE Asia)developing countries ( SE Asia)

•• Bureaucratic process BureaucraticBureaucratic process BureaucraticPerformancePerformance SocioSocio--EconomicEconomicDevelopmentDevelopment