Bureaucracy is derived from the Latin word bureau, used from the early 18th century in
Western Europe not just to refer to a writing desk, but an office,i.e. a workplace, where
officials worked. The original french meaning of the word bureau was the ‘la- bure’or baize
(Cloth) used to cover desk of the public authrities.The term bureaucracy came into use
shortly before the French revolution of 1789 and from there rapidly spread to other
countries.The greek suffix- Kratia or Kratos- means ‘Power or Rule’. Bureaucracy thus
basically means office power or office rule, the rule of the officialdom. Max Weber
described bureaucracy, as technically superior to all other forms of organization and
hence indispensable to large, complex enterprises.
Definition
According to Pfiffner, ‘bureaucracy is a systematic organization of tasks and individuals
into a pattern which can most effectively achieve the ends of collective efforts.
According to Paul H.Appleby, “bureaucracy is a class of technically skilled persons, who
are organized in a hierarchical way and serve the state in an impartial manner”.
In brief bureaucracy is a system of administration wherein there is a specialization of
functions, objectives qualifications for office, action according to the adherence to fixed
rules, and a hierarchy of authority and delegated powers.
Characteristics of Bureaucracy
1. Permanent Character:
Civil servants are employed in government agencies on a long-term basis. Typically,
they enter government service early in their careers and remain employed until reaching
retirement age, which typically falls between 58 and 60 years old.
2. Hierarchical Organisation:
The bureaucratic structure operates through a hierarchical arrangement spanning
multiple tiers. Each official holds a distinct position within this hierarchy, entailing
corresponding privileges and authority shared with peers at the same level. They are
accountable to superiors at higher levels while supervising those at lower levels. This
principle underscores the dynamics governing interactions across different bureaucratic
tiers.
3. Non-partisan Character:
The bureaucracy operates independently from political affairs, refraining from direct
involvement in partisan activities such as joining political parties or engaging in
movements. Political fluctuations within the executive branch do not sway them;
regardless of the ruling party, civil servants maintain political neutrality, diligently
executing their departmental duties with impartiality and fidelity.
4. Professional, Trained and Expert Class:
The bureaucratic sector encompasses a cadre of educated and professionally trained
individuals who assist the political executive in fulfilling its duties. Civil servants are
selected through competitive examinations, requiring a certain level of educational
attainment. Prior to their appointments, they undergo specialized training, and
throughout their tenure, they participate in orientation and refresher programs. Equipped
with the requisite knowledge, training, and expertise, they effectively execute
administrative tasks.
5. Fixed Salaries:
Every bureaucrat is granted a predetermined salary, determined by their position's
nature and level upon appointment. Individuals within the same administrative tier are
assigned a consistent pay scale. Additionally, each position includes various
allowances.
6. Bound by Rules and Regulations:
The bureaucracy consistently operates within the framework of established rules and
regulations. The principles of 'adhering strictly to rules,' 'following the proper channel,'
and 'making decisions only after satisfying the established rules' serve as guiding
principles that direct and govern the functioning of the bureaucracy. Every official
operates exclusively within the defined boundaries set by the rules of their respective
department.
7. Class Consciousness:
Civil servants exhibit a strong sense of class consciousness, diligently safeguarding
and advancing the interests of their fellow civil servants. Referred to as the white-collar
class, they firmly believe in their elevated status as government officials.
8. Public Service Spirit as the Ideal:
Contemporary bureaucracy aligns itself with a commitment to public service. It
consistently endeavor's to present itself as a group of civil servants dedicated to
advancing public welfare by fulfilling the needs of the community. They are tasked with
embodying the role of 'officers' accountable for public well-being, with service as their
guiding principle.
9. Bound by a Code of Conduct:
Civil servants are bound by a set of guidelines governing their behaviour. They
are required to maintain discipline and adhere to clearly outlined rights,
responsibilities, and privileges. Their work processes are well-established and
precise. Instances of misbehaviour, incompetence, negligence, or breaches of
conduct regulations can result in disciplinary actions. Essentially, bureaucracy is
marked by impartiality, expertise, secure employment, predetermined salaries,
and unwavering adherence to regulations.
Functions of Bureaucracy
1. Implementation of Governmental Policies and Laws:
It falls upon the bureaucracy to execute and enforce government policies.
Effective policies and laws can achieve their goals only when civil servants
efficiently implement them.
2. Role in Policy-Formulation:
Policymaking is primarily carried out by the political executive, yet
the bureaucracy also actively participates in this process. Civil servants provide
essential data required by the political executive to develop policies. They
present various policy options along with their respective advantages and
disadvantages. Ultimately, the political executive chooses and implements a
specific policy alternative as the official government policy.
3. Running of Administration:
Ensuring the daily operations align with government policies, laws, regulations,
and decisions is a fundamental duty of the bureaucracy. Meanwhile, the political
executive primarily provides guidance, control, and oversight.
4. Advisory Function:
A crucial role of the bureaucracy lies in offering counsel to the political executive.
Civil servants furnish ministers with comprehensive information and guidance
concerning the operations of their departments. Given that ministers often lack
in-depth familiarity with departmental functions, they rely heavily on bureaucratic
guidance. Leveraging their qualifications, experience, and expertise across
various government departments, civil servants deliver expert and professional
advice to ministers.
5. Role in Legislative Work:
Civil servants play a vital yet behind-the-scenes role in the legislative process.
They are responsible for drafting bills that ministers present to the legislature for
consideration, thereby contributing significantly to the law-making process.
Additionally, civil servants play a crucial role in the day-to-day operations of
government by providing the necessary information and support requested by
legislators.
6. Semi-judicial Work:
The rise of administrative justice systems, where various cases and disputes are
adjudicated by the executive branch, has led to an expansion in the semi-judicial
responsibilities of bureaucratic entities. Civil servants now handle disputes
related to permit issuance, licensing, tax concessions, quotas, and other
administrative matters.
7. Collection of Taxes and Disbursement of Financial Benefits:
Civil servants are integral to financial management, providing crucial guidance to
the political leadership on matters such as financial planning, tax structures, and
administration. They are responsible for tax collection and resolving disputes
related to tax recovery. Additionally, they play a pivotal role in crafting budgets
and proposing taxation measures. Furthermore, they oversee the distribution of
legally sanctioned financial benefits, tax reliefs, subsidies, and other concessions
to the populace.
8. Record-Keeping:
The civil service is tasked with the primary duty of systematically managing all
governmental records. Their responsibilities encompass the collection,
categorization, and analysis of data concerning various government activities.
Additionally, they gather and uphold crucial socio-economic statistics essential
for shaping public policies and plans.
9. Role in Public Relations:
In contemporary times, characterized by the prevalence of welfare states and
democratic governance, fostering strong ties between the government and its
citizens has become imperative. Maintaining robust public relations stands as a
fundamental requirement for every state. Civil servants are instrumental in
facilitating and enhancing these interactions
