CHANAKYA NATIONAL LAW UNIVERSITY

Final Draft for the Project of Political Science-III.

On
“Max Weber’s Theory of Bureaucracy.”

Submitted to: - Prof. (Dr.) S.P. Singh

Faculty of Political Science-III

By: Aishwarya Shankar

Roll No:1913

Course: B.A. LL.B. (Hons.)

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 DECLARATION BY THE CANDIDATE

I, hereby, declare that the work reported in the B.A.LL. B (Hons.) Project Report titled “Max
Weber’s Theory of Bureaucracy” submitted at CHANAKYA NATIONAL LAW
UNIVERSITY, PATNA is an authentic record of my work carried under the supervision of Prof.
(Dr.) S.P. Singh. I have not submitted this work elsewhere for any other degree or diploma. I am
fully responsible for the contents of my Project Report.

Aishwarya Shankar

Course: B.A. LL. B (Hons.)

SEMESTER – 5th

CNLU, PATNA

Dated: 01/11/2020

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TABLE OF CONTENTS

1. Introduction……………………………………………………………….……5.
2. Life of Max Weber………………………………………………………...…...7.
3. Bureaucracy: An Analysis……………………………………………………...9.
4. Bureaucratic Management Theory…………………………………………….12.
5. Merits and De-merits of Bureaucracy…………………………………………15.
6. Conclusion………………………………………………………………….….18.
7. Bibliography……………………………………………………………………21.

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 ACKNOWLEDGEMENT

I would like to show my gratitude towards my guide Prof. (Dr.) S.P. Singh, Faculty Political
Science-III, under whose guidance, I structured my project.

I owe the present accomplishment of my project to my friends, who helped me immensely with
the materials throughout the project and without whom I couldn’t have completed it in the present
way.

I would also like to extend my gratitude to my parents and all those unseen hands that helped me
out at every stage of my project.

THANK YOU,

AISHWARYA SHANKAR

SEMESTER 5th

CNLU, Patna

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 INTRODUCTION

The emergence of the management process and organization theory took place in two forms:
Fayol’s identification of the principles and elements of management and Weber’s search for an
ideal way of organizing. From different backgrounds and perspectives, both Fayol and Weber
attempted to develop methods for managing large-scale organizations. Fayol stressed education
for management rather than technical training, the importance of planning, organizing, command,
coordination, and control. Weber sought to replace authority based on tradition and charisma with
legal authority and to prescribe an impersonal and merit basis for selecting, hiring, and promoting
employees. Both Weber and Fayol had history’s misfortune of being overshadowed by others and
having to wait until after their deaths to receive proper credit for their roles in the ongoing
evolution of management thought. Max Weber (1864-1920), is said to be the 'father of bureaucratic
management theory.' Weber was a German sociologist and political economist that viewed
bureaucracy in a positive light, believing it to be more rational and efficient than its historical
predecessors.

Bureaucracy definition: “Bureaucracy is an organizational structure that is characterized by

many rules, standardized processes, procedures and requirements, number of desks, meticulous
division of labor and responsibility, clear hierarchies and professional, almost impersonal
interactions between employees”. According to the bureaucratic theory of Max Weber, such a
structure was indispensable in large organizations in structurally performing all tasks by a great
number of employees. In addition, in a bureaucratic organization, selection and promotion only
occur on the basis of technical qualifications. He believed bureaucracy was the most efficient way
to set up an organization, administration and organizations. Max Weber believed that Bureaucracy
was a better than traditional structures. In a bureaucratic organization, everyone is treated equal
and the division of labor is clearly described for each employee.

RESEARCH METHODOLOGY:

The methodology used in the project report is the doctrinal method of research.

AIMS AND OBJECTIVES:

1. To know about what bureaucracy is.

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 2. To know about Max Weber’s theory of Bureaucracy.
3. To know about advantages and disadvantages of his theory of bureaucracy.
4. To know about bureaucracy and state.

HYPOTHESIS:

1. The defining features of bureaucracy sharply distinguish it from other types of organization
based on nonlegal forms of authority.
2. Bureaucracy is the basis for the systematic formation of any organization and is designed
to ensure efficiency and economic effectiveness.
3. The principle of bureaucracy comes up with certain disadvantages too.

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 LIFE OF MAX WEBER
Maximilian Karl Emil Weber was a German sociologist, jurist, and political economist, who is
regarded today as one of the most important theorists on the development of modern Western
society.1 His ideas would profoundly influence social theory and social research.2

Unlike Émile Durkheim, Weber did not believe in monocausal explanations, proposing instead
that for any outcome there can be multiple causes. 3 As such, he was a key proponent of
methodological anti-positivism, arguing for the study of social action through interpretive (rather
than empiricist) methods, based on understanding the purpose and meanings that individuals
attach to their own actions. Weber's main intellectual concern was in understanding the processes
of rationalization, secularization, and "disenchantment", which he took to be the result of a new
way of thinking about the world,4 associating such processes with the rise
of capitalism and modernity.5

Weber is best known for his thesis combining economic sociology and the sociology of religion,
emphasizing the importance of cultural influences embedded in religion as a means for
understanding the genesis of capitalism (contrasting Marx's historical materialism). Weber would
first elaborate his theory in his seminal work, The Protestant Ethic and the Spirit of
Capitalism (1905), where he attributed ascetic Protestantism as one of the major "elective
affinities" involved in the rise of market-driven capitalism and the rational-legal nation-state in the
Western world. Arguing the boosting of capitalism as a basic tenet of Protestantism, Weber
suggested that the spirit of capitalism is inherent to Protestant religious values. Protestant
Ethic would form the earliest part in Weber's broader investigations into world religion, as he later
examined the religions of China and India, as well as ancient Judaism, with particular regard to
their differing economic consequences and conditions of social stratification.

In another major work, "Politics as a Vocation", Weber defined "the state" as an entity that
successfully claims a "monopoly of the legitimate use of physical force within a given territory."

1
https://en.wikipedia.org/wiki/Dictionary.com
2
Mitzman, Arthur (17 April 2020) [1998]. "Max Weber". Encyclopedia Britannica
3
Tiryakian, Edward A. (2009). For Durkheim: Essays in Historical and Cultural Sociology. Routledge. p. 321.
4
Macionis, John J. (2012). Sociology (14th ed.). Boston: Pearson. p. 88. ISBN 978-0-205-11671-3.
5
Habermas, Jürgen, The Philosophical Discourse of Modernity (originally published in German in 1985), Polity
Press (1990), ISBN 0-7456-0830-2, p. 2.

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He would also be the first to categorize social authority into distinct forms: charismatic, traditional,
and rational-legal. Among these categories, Weber's analysis of bureaucracy emphasized that
modern state institutions are increasingly based on the latter (rational-legal authority).

Weber also made a variety of other contributions in economic history, theory, and methodology.
His analysis of modernity and rationalization would significantly influence the critical
theory associated with the Frankfurt School. After the First World War, he was among the
founders of the liberal German Democratic Party. He also ran unsuccessfully for a seat in
parliament and served as advisor to the committee that drafted the ill-fated democratic Weimar
Constitution of 1919. After contracting Spanish flu, he died of pneumonia in 1920, aged 56.6

6
Stanford Encyclopedia of Philosophy. Center for the Study of Language and Information. ISSN 1095-5054

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 BUREAUCRACY: AN ANLYSIS

Bureaucracy is a personnel and administrative structure of an organization. Business, labour,

religious, educational, and governmental systems depend on a large workforce arranged in a
hierarchy to carry out specialized tasks based on internal rules and procedures. The term is used
mostly in referring to government administration, especially regarding officials in the federal
government and civil service. It is often used derogatorily to suggest waste, inefficiency, and red
tape.7

The term ‘bureaucracy’ has been widely used with invidious connotations directed at government
and business. Bureaucracy is an administrative system designed to accomplish large-scale
administrative tasks by systematically coordinating the work of many individuals. Weber has
observed three types of power in organisations: traditional, charismatic and rational-legal or
bureaucratic. He has emphasized that bureaucratic type of power is the ideal one.8

Primarily prescriptive in nature, Weber’s writings strike an interesting contrast with the
practitioner-oriented recommendations offered by Taylor and Fayol. Weber’s major contribution
was an outline of the characteristics of what he termed “bureaucracy,” that is, government by
bureaucrats.9

Bureaucracy, as just mentioned, is the machinery, which implements rational-legal authority. Max
Weber studied bureaucracy in detail and constructed an ideal type which contained the most
prominent characteristics of bureaucracy. Let us examine this ideal type which reveals to us the
major features of bureaucracy.

Major Features of Bureaucracy:

i. In order that the bureaucracy may function adequately, it relies on the following rules and
regulations.

7
(Microsoft Encarta, 2009)
8
Max Weber, From Max Weber: Essays in Sociology, ed. and trans. Hans H. Gerth and C. Wright MiHs (New York:
Oxford University Press, 1946), pp. 196— 294.
9
German Buro, 1979

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 a. The activities which comprise bureaucracy are distributed among the officials in the
form of official duties.
b. There is a stable or regular system by which officials are vested with authority. This
authority is strictly delimited by the laws of the land.
c. There are strict and methodical procedures which ensure that officials perform their
duties adequately.

The above mentioned three characteristics constitute ‘bureaucratic authority’, which is to be found
in developed and modern societies.

ii. The second feature of bureaucracy is that there is a hierarchy of officials in authority. By
this we mean that there is a firmly built structure of subordination and superordination.
Lower officials are supervised by higher ones and are answerable to them. The advantage
of this system is that governed people can express their dissatisfaction with lower officials
by appealing to the higher ones. For instance, if you are dissatisfied with the behaviour or
performance of a clerk or a section officer in an office, you can appeal to the higher official
to seek redress.
iii. The management of the bureaucratic office is carried out through written documents or
files. They are preserved and properly kept by clerks who are specially appointed for this
purpose.
iv. The work in the bureaucratic office is highly specialized and staff is trained accordingly.
v. A fully developed bureaucratic office demands the full working capacity of the staff. In
such a case, officials may be compelled to work over-time.

Having looked the main features of a bureaucratic set-up, let us now learn something about the
officials that you have found repeatedly mentioned above.10

10
Richard Swedberg; Ola Agevall (2005). The Max Weber dictionary: key words and central concepts. Stanford
University.

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Characteristics of Officials in Bureaucracy:

Weber mentions the following characteristics of officials in a bureaucratic set-up 11

i. Office-work is a ‘vocation’ for officials.

ii. They are specially trained for their jobs.
iii. Their qualifications determine their position or rank in the office.
iv. They are expected to do their work honestly.

Their official positions also have a bearing on their personal lives. Let us see how.

i. Bureaucratic officials enjoy a high status in society.

ii. Often, their jobs carry transfer liabilities. By this we mean that they may be transferred
from one place or department to another leading to some instability in their professional
and personal lives.
iii. Officials receive salaries not in accordance with productivity but status. The higher their
rank, the higher their salaries. They also receive benefits like pension, provident fund,
medical and other facilities. Their jobs are considered very secure.
iv. Officials enjoy good career prospects. They can move from the lower rungs of the
bureaucratic ladder to higher ones if they work in a disciplined manner.

11
https://librivox.org/author/663

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 BUREAUCRATIC MANAGEMENT THEORY

Weber's theory of bureaucratic management has two essential elements. First, it entails
structuring an organization into a hierarchy. Secondly, the organization and its members are
governed by clearly defined rational-legal decision-making rules. Each element helps an
organization to achieve its goals. 12

Weber developed the principles of bureaucracy—a formal system of organization and

administration designed to ensure efficiency and effectiveness. 13

A bureaucratic system of administration is based on five (5) principles which are:

1. Managers Formal Authority; is the power to hold people accountable for their actions and
to make decisions concerning the use of organizational resources

Bureaucratic organizations generally have administrative class responsible for maintaining

coordinative activities of the members. Main features of this class are as follows: 14

a. People are paid and are whole time employees,

b. They receive salary and other perquisites normally based on their positions,
c. Their tenure in the organization is determined by the rules and regulations of the
organization,
d. They do not have any proprietary interest in the organization,
e. They are selected for the purpose of employment based on their competence

2. Position should be Arranged Hierarchically, so employees know whom to report to and who
reports to them. The basic feature of bureaucratic organization is that there is hierarchy of
positions in the organization. Hierarchy is a system of ranking various positions in descending
scale from top to bottom of the organization. In bureaucratic organization, offices also follow

12
https://librivox.org/
13
Finer, Herman. (1941). Administrative responsibility in democratic government. Public Administration Review,
Vol. 1: 335-350
14
https://www.business.com/

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 the principle of hierarchy that is each lower office is subject to control and supervision by
higher office.

Thus, no office is left uncontrolled in the organization. This is the fundamental concept of
hierarchy in bureaucratic organization. This hierarchy serves as lines of communication and
delegation of authority. It implies that communication coming down or going up must pass
through each position.

Similarly, a subordinate will get authority from his immediate superior. However, this
hierarchy is net unitary but sub-pyramids of officials within the large organization
corresponding etc. functional divisions exist. 15

Thus, there are offices with the same amount of authority but with different kinds of functions
operating in different areas of competence. For example, the Government organizations, we
can observe separate offices looking after particular functions.16 This happens in business
organizations too.

3. Tasks and Authority associated with various positions in the organization should be clearly
specified for managers and workers to know what is expected of them. Work of the
organization is divided on the basis of specialization to take the advantages of division of
labour. Each office in the bureaucratic organization has specific sphere of competence. This
involves:
a. A sphere of obligations to perform functions which has been marked off as part of a
systematic division of labour;
b. The provision of the incumbent with necessary authority to carry out these functions;
and
c. The necessary means of compulsion are clearly defined and their use is subject to
definite conditions.

Thus, division of labour try to ensure that each office has a clearly-defined area of competence
within the organization and each official knows the areas in which he operates and the areas in

15
Max Weber. University of California Press. pp. 98–99. ISBN 978-0-520-03194-4.
16
https://books.google.com/books

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 which he must abstain from action so that he does not overstep the boundary between his role
and those of others. Further, division of labour also tries to ensure that no work is left
uncovered.

4. Managers Must Create a Well-Defined System of Rules, standard operating procedures, and
norms so that they can effectively control behavior within an organization. A basic and most
emphasized feature of bureaucratic organization is that administrative process is continuous
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and governed by official rules. Bureaucratic organization is the antithesis of ad hoc,
temporary, and temporary and unstable relations. A rational approach to organization calls for
a system of maintaining rules to ensure twin requirements of uniformity and coordination of
efforts by individual members in the organization.

These rules are more or less stable and more or less exhaustive. When there is no rule on any
aspect of organizational operation, the matter is referred upward for decision which
subsequently becomes precedent for future decision on the similar matter. Rules provide the
benefits of stability, continuity, and predictability and each official knows precisely the
outcome of his behaviour in a particular matter.

5. Appointment and Promotion Base on Competency not Base on Sentiment. A notable

feature of bureaucracy is that relationships among individuals are governed through the system
of official authority and rules. Official positions are free from personal involvement, emotions
and sentiments. Thus, decisions are governed by rational factors rather than personal factors.
This impersonality concept is used in dealing with organizational relations as well as relations
between the organization and outsiders.

17
Crozier, Michel. (1964). The Bureaucratic Phenomenon. Chicago: University of Chicago Press.

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 MERITS AND DEMERITS OF BUREAUCRACY

Merits:

Weber identified the essential characteristics of his “ideal” bureaucracy and believed that specific
advantages would accrue to undertakings that embodied them. These characteristics and sample
merits include: 18

a. Division of Labour: Labour is divided so that authority and responsibility are clearly defined.
The division of labour assists workers in becoming experts in their jobs. The performance of
employees improves considerably.
Advantage—Efficiency will increase through specialization.
b. Managerial Hierarchy: Offices or positions are organized in a hierarchy of authority.
Advantage— A clear chain of command will develop from the highest to the lowest level of
an organization (Fayol’s scalar chain principle), defining different levels of authority, and thus
individual discretion, as well as enabling better communication.
c. Formal Selection: All employees are selected on the basis of technical qualifications
demonstrated by formal examination, education, or training. The selection process and
promotion procedures are based on merit and expertise. It assists in putting right persons on
right jobs. There is optimum utilization of human resources.
Advantage—Employees will be hired and promoted based on merit and expertise, thus,
benefiting both them and their employer.
d. Career Orientation. Although a measure of flexibility is attained by electing higher-level
officials who presumably express the will of an electorate (for example, a body of citizens or
a board of directors), employees are career professionals rather than “politicians.” They work
for fixed salaries and pursue “careers” within their respective fields.
Advantage—The hiring of “career” professionals will ensure the performance of assigned
duties without regard for extraneous pressures, as well as ensure a continuity of operations
across election cycles.

18
Friedrich, C. (1940). Public policy and the nature of administrative responsibility. In C.J. Friedrich (Ed.), Public
Policy: 3-24. Cambridge: Harvard University Press.

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e. Formal Rules and Other Control: All employees are subject to formal rules and other
controls regarding the performance of their duties. The rules and procedures are decided for
every work it leads to, consistency in employee behaviour. Since employees are bound to
follow the rules etc., the management process becomes easy.
Advantage—Efficiency will increase as formal rules and other controls relating to employee
performance are enforced.
f. Impersonality: Rules and other controls are impersonal and uniformly applied in all cases.
The enterprise does not suffer when some persons leave it. If one person leaves then some
other occupies that place and the work does not suffer.
Advantage — When rules and other controls are applied impersonally and uniformly,
involvement with personalities and personal preferences is avoided. Subordinates are thereby
protected from arbitrary actions of their superior.

Demerits of Bureaucracy:

Although Weber considered bureaucracy to be the most efficient means of organizing, both his
own experience and subsequent research have shown that it often results in certain disadvantages.
These include:

a. Rules and other controls may take on significance of their own and, as consequence, become
ends in themselves. Employees, for example, may accuse budget personnel of being more
interested in applying rules and regulations than achieving a firm’s primary goals.
b. Extreme devotion to rules and other controls may lead to situations in which past decisions are
blindly repeated without appreciation or concern for changed conditions. Such “bureaucratic
rigidity” results in managers being compensated for doing what they are told and not for
thinking. The result is “rule by rules” rather than common sense.
c. Whereas delegation of authority to lower levels may increase operational effectiveness, it may
also encourage an emphasis on subunit rather than overall goals, thereby prompting subunit
conflict and decreasing effectiveness. A typical example can be found in many universities
where conflicts over which department is going to offer what courses often result in
unnecessary duplication of subject offerings, as well as the unnecessary expenditure of
resources.

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d. Although rules and other controls are intended to counter worker apathy, they may actually
contribute to it by defining unacceptable behaviour and, thus, specifying a minimum level of
acceptable performance. That is, it is possible, once rules have been defined, for employees to
remain apathetic, for they now know just how little they can do and still remain secure. This is
commonly known as “working to the rules,” because what is not covered by rules is by
definition not an employee’s responsibility. Within an educational setting, statements such as
“all students must attend at least 50 percent of the classes during a term to pass” or “the
minimum requirement for graduation is a C average on all course work undertaken” are in
frustrations of this phenomenon in that they clearly define minimum levels of acceptable
behaviour. Unfortunately, a typical administrative response in such circumstances is to enact
additional bureaucratic rules (such as mandatory class attendance) and, in turn, further
aggravate an already poor situation. Unless care is taken, however, such a situation may result
in a “vicious circle of bureaucracy,” because once employees discover the appeasing effect of
rules, they may push for even more controls to further restrict management’s power. Therefore,
rules maybe functional in one sense, but in another (unintended) sense, they permit employee
involvement without requiring emotional commitment.19

CRITICISMS:20

1. The rules are inflexible and rigid. Further, there is too much emphasis on these rules and
regulations.
2. Informal groups do not receive any importance. In current times, informal groups play a
huge role in most business organizations.
3. Typically, bureaucracy involves a lot of paperwork which leads to a waste of time, money,
and also effort.
4. The rules and formalities lead to an unnecessary delay in the decision-making process.

19
Gerth, H, and G. Wright Mills. (1946). From Max Weber: Essays in Sociology. New York: Oxford University
Press.
20
https://www.toppr.com/

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 CONCLUSION

Max Weber was a German sociologist who argued bureaucracy was the most efficient and rational
model private businesses and public offices could operate in. His bureaucratic theories influenced
generations of business leaders and politicians well into the 20th century. While Weber's theory
prioritizes efficiency, it isn't necessarily the best practice for leaders to implement. Weber was
unlike most workplace leaders today. His theory of management, also called the bureaucratic
theory, stressed strict rules and a firm distribution of power. He would've scolded today's
managers, most of whom are open to new ideas and flexible work arrangements, for their
leadership style.

"Precision, speed, unambiguity, knowledge of files, continuity, discretion, unity, strict

subordination, reduction of friction and of material, and personal costs – these are raised to the
optimum point in the strictly bureaucratic administration," wrote Weber. Many of Weber's beliefs
discourage creativity and collaboration in the workplace, and oppose flexibility and risk. Weber
believed that bureaucracy was the most efficient way to set up and manage an organization, and
absolutely necessary for larger companies to achieve maximum productivity with many employees
and tasks. In an ideal bureaucracy, everyone is treated equally, and work responsibilities are
clearly divided by each teams' areas of expertise. A well-defined hierarchical management system
supports this, providing clear lines of communication and division of labor based on the layer of
management one worked in.

Advancement in the organization is determined solely on qualifications and achievements rather

than personal connections. Weber believed the work environment should be professional and
impersonal – "work relationships" are strongly discouraged. Overall, Weber's ideal bureaucracy
favours efficiency, uniformity and a clear distribution of power. Certain other characteristics are:

Clearly defined job roles: Weber believed that responsibilities should be delegated based on skill
and ability. There should be no flexible roles. Rather, employees should be aware of their position's
responsibilities and stick to them. Straying outside of their designated roles only disrupts the
hierarchy of authority. Therefore, collaboration, creative thinking and idea pitching are also
strongly discouraged. Also, workers should respect their supervisors and not overstep boundaries.

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Meticulous record-keeping: According to Weber, leaders should take notes on every position,
occurrence or concern that involves the company. That way, they can refer to it later and handle
any issues accordingly. For instance, managers should record every responsibility of every role in
the company so there are no misunderstandings. If an employee calls out sick or shows up late to
a shift, their manager should keep tabs to ensure there are no negative patterns.

Additionally, workers should track their hours, and record their daily assignments and progress.
Managers have the right to know how their employees are using (or abusing) their time.

Hiring based solely on specific qualifications: Weber advocated that only the most ideal
candidates with the exact skill set required for the position should be hired to ensure the best
results. There should be no nepotism or exceptions; only those individuals with the right skills and
expertise who meet the high standards of the organization should be hired. If a person is not
perfectly qualified, they are not a fit.

Work-appropriate relationships only: Weber did not condone any type of personal relationship
in the workplace. He supported the notion that all work relationships are bound by rules and
regulations. There should be no small talk, collaboration or sharing of ideas. Work is a work; it
isn't a social outing.

It has to be acknowledged that even though Weber believes rationality and efficiency can be
attained through bureaucracy, he was mindful of its shortcomings as evidenced by the fact that he
also associated it with “an oppressive routine adverse to personal freedom”. He realizes that
bureaucracy limits individual freedom and makes it difficult if not impossible for individuals to
understand their activities in relation to the organization as a whole. Most importantly, bureaucracy
favors what Weber called the “crippled personality of the specialties”. Due to the irreconcilable
differences between the administrative traditions that were presented by the founding fathers and
the impossibility of managing a modern society without bureaucracy, it is not surprising that
scholars within the field of public administration have so far failed to come up with an adequate
theoretical base to explain the relationship between bureaucracy and representative government.
The changes that have taken place within the American society make it clear that the problems
administrators have to contend with do not easily fit the existing structure of hierarchy and
authority-based structure. Hence, the need to restructure or readjust the bureaucracy to adapt to

19
new and complex problems becomes apparent. Unfortunately, there is no consensus regarding how
the restructuring can be done and this issue will remain one of the hot debates in the field of public
administration for the coming decades

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 BIBLIOGRAPHY
BOOKS:

1. Introduction to the Study of Public Administration by Leonard D. White, Publication:

Eurasia Publishing House Pvt Ltd.
2. Public Administration by Dr. B.L. Fadia and Dr. Kuldeep Fadia, Publication: Sathiya
Bhawan Publications.
3. Public Administration by Avasthi & Maheshwari, Publication: Lakshmi Narain Agrawal,
Agra-3.

ARTICLES AND JOURNALS:

4. Alexander, Jennifer and Richmond, Sam. (2007). The Cider House Rules. American
Review of Public Administration, 37(1) 51-64.
5. Finer, Herman. (1941). Administrative responsibility in democratic government. Public
Administration Review, Vol. 1: 335-350.
6. Hummel, R. (1998). Bureaucracy. The International Encyclopedia of Public Policy and
Administration: 307

WEBSITES:

7. https://www.business.com/
8. https://www.toppr.com/
9. https://www.britannica.com/

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