Max Weber on Bureaucracy I.

Merriam Websters Definition of Bureaucracy: 1 a : a body of nonelective government officials b : an administrative policymaking group 2 : government characterized by specialization of functions, adherence to fixed rules, and a hierarchy of authority 3 : a system of administration marked by officialism, red tape, and proliferation II. Background and Description Max Weber was born 1864 and died 1920. Weber asks how is it a leader can give a command and have actions carried out? He answers the question by classifying claims to the "legitimacy" in the exercise of authority. His observations on bureaucracy were heavily influenced by his experiences in the United States. While traveling there, Weber was struck by the role of bureaucracy in a democratic society. The problem, as he saw it, was that modern democracy required bureaucratic structures of all kinds in the administration of government and even in the conduct of professional party politics. Handing over the reins to a class of unelected "experts," however, threatened to undermine the very basis of democracy itself. In particular, Weber stressed two problems: the unaccountability of unelected civil servants and the bureaucratic tendency toward inflexibility in the application of rules. Weber's interest in the nature of power and authority, as well as his pervasive preoccupation with modern trends of rationalization, led him to concern himself with the operation of modern large-scale enterprises in the political, administrative, and economic realm. Bureaucratic coordination of activities, he argued, is the distinctive mark of the modern era. Bureaucracies are organized according to rational principles. Offices are ranked in a hierarchical order and their operations are characterized by impersonal rules. Incumbents are governed by methodical allocation of areas of jurisdiction and delimited spheres of duty. Appointments are made according to specialized qualifications rather than ascriptive criteria. This bureaucratic coordination of the actions of large numbers of people has become the dominant structural feature of modern forms of organization. Only through this organizational device has large- scale planning, both for the modern state and the modern economy, become possible. Only through it could heads of state mobilize and centralize resources of political power, which in feudal times, for example, had been dispersed in a variety of centers. Only with its aid could economic resources be mobilized, which lay fallow in pre-modern times. Bureaucratic organization is to Weber the privileged instrumentality that has shaped the modern polity, the modern economy, the modern technology. Bureaucratic types of organization are technically superior to all other forms of administration, much as machine production is superior to handicraft methods.

Yet Weber also noted the dysfunctions of bureaucracy. Its major advantage, the calculability of results, also makes it unwieldy and even stultifying in dealing with individual cases. Thus modern rationalized and bureaucratized systems of law have become incapable of dealing with individual particularities, to which earlier types of justice were well suited. The "modern judge," Weber stated in writing on the legal system of Continental Europe, " is a vending machine into which the pleadings are inserted together with the fee and which then disgorges the judgment together with the reasons mechanically derived from the Code." Weber's focus on the trend of rationalization led him to concern himself with the operation and expansion of large-scale enterprises in both the public and private sectors of modern societies Bureaucracy can be considered to be a particular case of rationalization, or rationalization applied to human organization. Bureaucratic coordination of human action, Weber believed, is the distinctive mark of modern social structures. In order to study these organizations, both historically and in contemporary society, Weber developed the characteristics of an ideal-type bureaucracy:

Hierarchy of authority Impersonality Written rules of conduct Promotion based on achievement Specialized division of labor Efficiency

According to Weber, bureaucracies are goal-oriented organizations designed according to rational principles in order to efficiently attain their goals. Offices are ranked in a hierarchical order, with information flowing up the chain of command, directives flowing down. Operations of the organizations are characterized by impersonal rules that explicitly state duties, responsibilities, standardized procedures and conduct of office holders. Offices are highly specialized. Appointments to these offices are made according to specialized qualifications rather than ascribed criteria. All of these ideal characteristics have one goal, to promote the efficient attainment of the organization's goals Some have seriously misinterpreted Weber and have claimed that he liked bureaucracy, that he believed that bureaucracy was an "ideal" organization. Others have pronounced Weber "wrong" because bureaucracies do not live up to his list of "ideals." Others have even claimed that Weber "invented" bureaucratic organization. But Weber described bureaucracy as an "ideal type" in order to more accurately describe their growth in power and scope in the modern world. The bureaucratic coordination of the action of large numbers of people has become the dominant structural feature of modern societies. It is only through this organizational device that large-scale planning and coordination, both for the modern state and the modern economy, become possible. The

consequences of the growth in the power and scope of these organizations is vital to understanding our world. III. Quotes from Weber on Bureaucracy: "From a purely technical point of view, a bureaucracy is capable of attaining the highest degree of efficiency, and is in this sense formally the most rational known means of exercising authority over human beings. It is superior to any other form in precision, in stability, in the stringency of its discipline, and in its reliability. It thus makes possible a particularly high degree of calculability of results for the heads of the organization and for those acting in relation to it. It is finally superior both in intensive efficiency and in the scope of its operations and is formally capable of application to all kinds of administrative tasks "The principles of office hierarchy and of levels of graded authority mean a firmly ordered system of superiority and subordination in which there is a supervision of the lower offices by the higher ones. No machinery in the world functions so precisely as this apparatus of men and, moreover, so cheaply... Rational calculation . . . reduces every worker to a cog in this bureaucratic machine and, seeing himself in this light, he will merely ask how to transform himself into a somewhat bigger cog. . . . The passion for bureaucratization drives us to despair" "The needs of mass administration make it today completely indispensable. The choice is only between bureaucracy and dilettantism in the field of administration" "When those subject to bureaucratic control seek to escape the influence of existing bureaucratic apparatus, this is normally possible only by creating an organization of their own which is equally subject to the process of bureaucratization" [Socialism] "would mean a tremendous increase in the importance of professional bureaucrats" "It is horrible to think that the world could one day be filled with nothing but those little cogs, little men clinging to little jobs and striving toward bigger ones--a state of affairs which is to be seen once more, as in the Egyptian records, playing an ever increasing part in the spirit of our present administrative systems, and especially of its offspring, the students. This passion for bureaucracy ...is enough to drive one to despair. It is as if in politics. . . we were to deliberately to become men who need "order" and nothing but order, become nervous and cowardly if for one moment this order wavers, and helpless if they are torn away from their total incorporation in it. That the world should know no men but these: it is in such an evolution that we are already caught up, and the great question is, therefore, not how we can promote and hasten it, but what can we oppose to this machinery in order to keep a portion of mankind free from this parceling-out of the soul, from this supreme mastery of the bureaucratic way of life."

"When fully developed, bureaucracy stands . . . under the principle of sine ira ac studio (without scorn and bias). Its specific nature which is welcomed by capitalism develops the more perfectly the more bureaucracy is 'dehumanized,' the more completely it succeeds in eliminating from official business love, hatred, and all purely personal, irrational and emotional elements which escape calculation. This is the specific nature of bureaucracy and it is appraised as its special virtue" "The decisive reason for the advance of bureaucratic organization has always been its purely technical superiority over any other kind of organization. The fully developed bureaucratic mechanism compares with other organizations exactly as does the machine with the non-mechanical modes of organization" "Precision, speed, unambiguity, knowledge of the 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 organization" "The apparatus (bureaucracy), with its peculiar impersonal character. . . is easily made to work for anybody who knows how to gain control over it. A rationally ordered system of officials continues to function smoothly after the enemy has occupied the area: he merely needs to change the top officials" Imagine the consequences of that comprehensive bureaucratization and rationalization which already today we see approaching. Already now . . . in all economic enterprises run on modern lines, rational calculation is manifest at every stage. By it, the performance of each individual worker is mathematically measured, each man becomes a little cog in the machine and, aware of this, his one preoccupation is whether he can become a bigger cog. . . . It is apparent today we are proceeding towards an evolution which resembles [the ancient kingdom of Egypt] in every detail, except that it is built on other foundations, on technically more perfect, more rationalized, and therefore much more mechanized foundations. The problem which besets us now in not: how can this evolution be changed?--for that is impossible, but: what will come of it? IV. Quotes from Others on Bureaucracy: Bureaucracy is the death of all sound work -Albert Einstein Every revolution evaporates and leaves behind only the slime of a new bureaucracy. -Franz Kafka quotes (German Writer of visionary fiction, 18831924) Join in the new game that's sweeping the country. It's called "Bureaucracy" Everybody stands in a circle. The first person to do anything loses. anonymous

You will never understand bureaucracies until you understand that for bureaucrats procedure is everything and outcomes are nothing. - Thomas Sowell quotes (American Writer and Economist, b.1930) More harm was done in the 20th century by faceless bureaucrats than tyrant dictators. - Dennis Prager quotes (Radio talk show host, author, lecturer) A bureaucracy is sure to think that its duty is to augment official power, official business, or official members, rather than to leave free the energies of mankind; it overdoes the quantity of government, as well as impairs its quality. The truth is, that a skilled bureaucracy is, though it boasts of an appearance of science, quite inconsistent with the true principles of the art of business. -- Bagehot, Walter Government proposes, bureaucracy disposes. And the bureaucracy must dispose of government proposals by dumping them on us. -O'Rourke, P. J. (American Political Satirist) V. Responses: 1. Explore the functions and dysfunctions of bureaucracy? 2. Why are the rules so important in a bureaucracy? What are the advantages and disadvantages of making decisions on the basis of general rules, rather than on a case-by-case basis? What are the implications of this in the political process? 3. Is a heavy bureaucracy an necessary structure to help governments to deal with the complexities of modern life and the expectations of modern governments? Explain? 4. Does bureaucracy, by definition, lead to stagnancy, corruption and/or mediocrity? 5. In what ways might bureaucracy be non-democratic?