Bureaucracy

Development
• It is as old as human civilization itself.

• Modern bureaucracies arose as the

government of states grew larger during the
modern period, and especially following the
Industrial Revolution.

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 Concepts

• Bureaucratic administration means fundamentally domination

through knowledge— Max Weber

• Weber described many ideal types of public administration and

government in his magnum opus Economy and Society (1922)

• the bureaucratization of society- due to democratization and

rationalization of culture

• The decisive reason for the advance of bureaucratic

organization has always been its purely technical superiority
over any other form of organization
— Max Weber

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 Weber’s Bureaucratic Model- The Ideal-type of
Bureaucracy
• The Rationalization of Society: the historical change
from tradition to rationality as the dominant mode of
human thought. (Macionis)
• Tradition Vs Rationality
– Tradition: sentiments and beliefs passed from generation to
generation.
– Rationality: objective, deliberate, matter-of-fact calculation
of the most efficient means to accomplish a particular goal.
– It’s willingness of the society to adopt the latest technology

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 Definitions
• An organizational model rationally designed to perform
complex tasks efficiently. (Macionis)

• The type of organization designated to accomplish large-

scale administrative tasks by systematically coordinating the
work of many individuals.
(Blau & Meyer)

• Any large organization, public or private, characterized by a

clearly defined hierarchy of impersonal offices to which
persons are appointed based on technical qualifications and
through which they are subject to strict discipline and
control. (Weber)
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 Characteristics of Bureaucracy
• Max Weber identified six key elements of the
ideal bureaucratic organization:
– Specialization (Fixed division of labor)
– Technical Competence
– Hierarchy of offices
– Rational-legal authority (Rules & regulations)
– Impersonality….. Dehumanized bureaucracy
– Formal written communications

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 Weber’s Bureaucracy

Copyright © 2010 Pearson Education, Inc.

Publishing as Prentice Hall 2–6
 An Analysis by Scott
• Bureaucratic structures evolved from traditional
structures with the following changes:

1. Jurisdictional areas are clearly specified, activities

are distributed as official duties.

2. Organization follows hierarchical principle --

subordinates follow orders of superiors, but have right of appeal

3. Abstract rules govern decisions and actions.

Decisions are recorded in permanent files

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4. Means of production or administration belong to
office. Personal property separated from office
property.

5. Officials are selected on the basis of technical

qualifications.

6. Employment by the organization is a career. The

official is a full-time employee and looks forward
to a life-long career.

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 Scott ..conti

• Weber's view of bureaucracy was system based on power &

discipline.

• Weber stressed that the rational-legal form was the most stable
of systems for both superiors and subordinates -- it's more
reliable and clear.

• Subordinates ideally can challenge the decisions of their leaders

by referring to the stated rules.

• bureaucratic systems can handle more complex operations than

traditional systems.
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 Criticism

• Recognizing bureaucracy as the most efficient form of

organization, Weber also saw it as a threat to
individual freedoms.

• Parsons (1947) and Gouldner (1954) note that Weber

said authority rests both in the "legal incumbency of
office" and on "technical competence". This works if
superiors have more knowledge and skill, but often this
is not the case.

• Bureaucrats consider individuals as cases and not as

human beings.
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 Criticism
• Bureaucracy and responsiveness- Red-tape, delays,
inefficiency, corruption

• Although bureaucracies are established to serve the

society, but with the passage of time as bureaucracies get
maturer, the society become dependent of them.

• Rules becomes ends in themselves instead of means

toward end i.e service delivery

• Impersonality, sometimes, becomes almost impossible as

public office holders are human beings not machines
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 Pakistani Bureaucracy: a Comparison with
Weber’s Principles
• The civil service of Pakistan follow the principle
of hierarchy.
• Selection of candidates is based on technical
qualifications determined by a rigorous process.
• The system of division of labor exists.
– Strict division between generalists and specialists
• The civil service is a well-defined career based
on seniority, or merit or both

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• Although merit system is the hallmark of civil
service, however, quota system is also present.

• It is rule bounded and operates in legal

framework.

• As Weber identified malfunctions of

bureaucracy, we also find such drawbacks in
Pakistani bureaucratic systems and structures.

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Q&A

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