Bureaucracy is defined as a management approach that emphasized a structured organization in which positions and authority are defined according to formal rules.
Max weber (1864-1920) had also defined Bureaucracy an institutional method for applying general rules to specific cases thereby making the actions of Government fair and predictable.
Learn about:-
1. Meaning of Bureaucracy 2. Nature of Bureaucracy 3. Historical Perspective 4. Characteristics or Features 5. Kinds 6. Rationale 7. Advantages and Benefits 8. Disadvantages and Dysfunctions.
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Contents:
- Meaning of Bureaucracy
- Nature of Bureaucracy
- Historical Perspective of Indian Bureaucracy
- Characteristics or Features of Bureaucratic Organisation
- Kinds of Bureaucracies
- Rationale of Bureaucracy
- Advantages and Benefits of Bureaucracy
- Disadvantages and Dysfunctions of Bureaucracy
Bureaucracy: Meaning, Characteristics, Kinds, Nature, Rationale, Advantages and Disadvantages
Bureaucracy – Meaning
The Government is responsible for the maintenance of law and order in the country and has also to protect the boundaries of the country from foreign aggression. Besides, it is also responsible for formulation and implementation of its policies and programmes related with economic development and social endowments.
To run the administration of a country in an effective way, a band of capable officers efficient, prompt, just and sympathetic belonging to different disciplines of civil services are required. Bureaucrats are the persons who belong to these civil services. These bureaucrats always live behind the scene.
These civil servants, who not only dig expert knowledge from the raw material, but also give it a shape with a sense of commitment. Politicians, come for a short period and go. It is the bureaucrats, appointed on a long-term basis, provide continuity in the governance of the nation.
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Thus, bureaucracy is an indispensable part of any Government. Due to its exclusive and specialist nature of work and the need for more expert knowledge in administration for improving the quality of life, the importance of administrative civil-services increases day-by-day.
Bureaucracy is a distinctive arrangement used by human beings to organize their activities. The invention of Western bureaucracy several centuries ago helped in solving the problem of leaders of governing human systems that grew larger and more complicated with each passing year.
The bureaucracy in India is the product of two different sets of influences- British traditions of the past and the democratic welfare state of the present. The bureaucracy, created by the British to maintain the imperialist traditions of a colonial Government was a remarkable administrative legacy. However, since the end of the colonial period, environment for Indians bureaucracy is changing.
Now bureaucrats are working in different orientation. They have been assigned to play their role in different economic, social, legal, political and international environment. During the pre-reforms era, they had commanded economic and social endowments in highly regulated setup. Now, bureaucracy string to adjust their role in post reforms scenario. Actually, they are the change agents in the changing environment of Indian Society.
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Bureaucracy has been assigned a key role in the process of nation building, socio-economic development, policy formulation and policy implementation. The maintenance of national integrity and the success and failures of various programmes of socio-economic development in the country have depended to the great extent on the capacity of the bureaucracy.
Bureaucracy – Nature
Bureaucracy is defined as a management approach that emphasized a structured organization in which positions and authority are defined according to formal rules. Max weber (1864-1920) had also defined Bureaucracy an institutional method for applying general rules to specific cases thereby making the actions of Government fair and predictable.
“Weber’s theory of bureaucracy is a management approach characterized by an organizational structure in which positions and authority are defined according to explicit rules. It is meant to rationalize the practice of management in this new order. He opined that the authority to manage is exercised by the position a person held, not by the person. No matter who occupied a particular position within the organization, that individual would possess specific managerial authority because of the rules that defined the scope of that job. Bureaucratic approach helps the managers to manage complex organizations of all types more efficiently. Although bureaucracy in its most extreme form has become associated with the problems of red tape and layers of rules, the ideal bureaucracy that Weber envisioned has many advantages for managers. Not only do bureaucracies define rational networks of authority and activity that help to achieve organizational goals, they also provide economies of scale in obtaining resources and may therefore promote greater effectiveness.”
There are different connotations for bureaucracy:
Today it has at least four separate meanings:
(i) The totality of Government offices or bureaus that constitute the permanent Government of a state; that is, those people and functions that continues irrespective of changes in political leadership.
(ii) All of the public officials of a Government.
(iii) A general invective to refer to any inefficient organization encumbered by red tape.
(iv) A specific set of structural arrangements.
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Bureaucracy is also called as the fourth branch of Government. While technically under control of the executive branch, it sometimes seems to function as if it had a will, power, and legal authority all its own.
According to Max Weber bureaucracy deals with a design in which tasks, authority, and reporting relationships are formally defined. These systems are meant to bring order and reason to the organization while eliminating favouritism and other inequities. It is quite true that in present scenario bureaucracy is often associated with red tape and rigidity, but its basic purpose is to enhance organizational efficiency.
Bureaucracy – Historical Perspective of Indian Bureaucracy: The East India Company, the Crown and Indian Republic
British have laid down the foundation of many democratic institutions in India including bureaucracy/civil services. It is one of the oldest and most wonderful institutions, the British has bequeathed to India. It has a long historical background and is a product of centuries.
It has evolved, slowly but steadily, under the three successive regimes:
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(A) The East India Company,
(B) The Crown, and
(C) Indian Republic.
A. Under East India Company:
The term ‘civil service’, was first used in the late eighteenth century to designate employees of East India Company. Roughly from 1606 to 1740, its employees, known as ‘Factors’, were managing primarily trading operations, and incidentally administrative work. Notably after Battle of Plassey, its administrative work grew more and more in size. Precisely from 1741 to 1834, the civil servants were entrusted with purely administrative activities.
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After the annexation of Indian territories, East India Company consolidated its position as a dominant power in India by 1784. The spread of its authority changed the character and role of its employees, from merchants to that of Statesmen, from traders to governors, and Judges and Magistrates. Earlier they were known as ‘writers’.
The shape to bureaucracy was given during the regimes of Warren Hastings, Lord Cornwallis and Lord Wellasly. Lord Wellasly (1798-1805) created a corps of specially talented officers selected from the Commercial services as well as army. These officers were called ‘pioneers’ and were made responsible for the pioneering task of settling newly conquered areas, making political adjustments, restoring law and order, assessment and collection of land revenue, administration of criminal and civil justice and some of developmental tasks to gain confidence of people.
The administrative structure under East India Company was simple, but effective. Formalities were the minimum. The officers possessed a high sense of responsibility. They developed traditions of character, initiative, imagination, understanding and paternalism.
The civil service was not only a career for them, but something which they had built-up, united and administered. They were the spokesmen of its dumb masses and often fought with their superiors for the interest of the people. A civilian of those days said, “They ruled with an iron hand in a velvet glove”.
In the absence of any fast means of communication, the officers at the district were compelled to take decisions of their own to important matters of policy and administration.
The main characteristics of the administration during those days were as follows:
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(i) Concentration of authority and responsibility in the District Officer who was Magistrate, Collector, and Judge;
(ii) The area of the district was not so large as to make this undivided responsibility impossible. The District Officer had complete knowledge of his area and people;
(iii) The administration was based on a set of simple laws and rules, respected Indian Institutions and local customs, so far as they did not clash with the Imperial interest.
B. Under the Crown (1858-1947):
It was the golden period of bureaucracy. From 1858 to 1919, bureaucracy, especially the ICS, attracted best talents of British Society, mostly graduates from Oxford or Cambridge. During this period, the civil services were institutionalized. The whole system, from top to bottom, became well-knit, highly centralised and behaved like an unbreakable steel frame with all the characteristics of a full-fledged Autocracy.
In 1858, when the transfer of power from East India Company to the British Crown became a reality, the foundations of the Indian Civil Services were formally laid. Without doubt, higher Civil Services dining this period were exclusively made to suit the special needs of British Imperial Power. The British Government was very clear about its aims and objectives – to maintain law and order, collect revenue and perpetuate British rule in India as long as possible, as India was like a precious ‘Jewel in the Crown’.
It aimed to enforce due process of law, collect revenue, to maintain efficiency in all basic matters – crime, land revenue, records of rights and economy. The British Government in India did not favour its indulgence in any kind of social welfare activity, which would, later on, pose problems for Imperial rule in India. Initiative and actions were the aims to be sought.
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The ICS responsible for law and order situation and revenue collection was conceived and propped up as the elite service meant predominantly for British citizens. Its members were bestowed with all kinds of authority, favours, concessions and privileges. “They exercised and enjoyed immense power and privileges. The bureaucracy of this period had developed certain traditions of independence, integrity, and hard work, though these qualities served the British interest Due to its decisive role, these services, particularly the ICS, came to be called “Steel- frame of the whole structure”, which reared and sustained the British rule in India.”
Unlike the decentralized administration during the East India Company, growth of rapid means of communication made centralization of administration possible. It not only became rigid in its class structure, but also became bureaucratic in methods and procedure of work. Centralization tightened the regulatory functions of the officials to supervise and control the subordinate officials and made the office procedure elaborate and cumbersome.
Without doubt, during this period, bureaucracy gradually developed into one of the most efficient and powerful civil services in the world It developed certain traditions of independence, integrity, and hard work, though these qualities served the British interest. The bureaucracy, particularly the ICS, came to be known as the “Steel-frame of the whole structure”.
In post 1919 period, as the National movement intensified, the demand for Indianisation of higher civil services increased. Dyarchy promised progressive realization of responsible and self-government in India. India Act of 1935 allowed the continuance of only three All India Services, namely, Indian Civil Service, Indian Police Service and Indian Medical Service (Civil).
These services performing control functions were kept under the direct supervision of British rulers. Certain All India Services, particularly, those dealing with service functions were provincialized like Education Service, Agriculture Service, Veterinary Service or services dealing with roads and building etc.
Other services were not abolished abruptly or left to die its own death. With the gradual Indianisation of All India Services, the class consciousness of these services became dim. British element in the service had lost its old sense of mission, was feeling frustrated. It weakened the solidarity of services.
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During post 1935 period, the ICS officials had lost much of its past authority and therefore, showed a noticeable fall in standards. The period after 1935 witnessed frequent clashes between the Indian Ministers and British officials. Post-1935 period taught the officials to learn to tolerate elected representatives and ministers. Those, who were still thinking in terms of their previous status and authority, took premature retirement.
During Interim Period (From 1947 to 1950) many national leaders did not like the idea of building up a new India, the very machinery that was till now hampering and countering the freedom movement should be used. According to them the spirit of authoritarianism of bureaucracy under imperial rule could never co-exist with freedom. Sardar Patel was very sure that India has no alternative to this administrative system.
He said, I wish to place it on record in this house that if during the last two or three years, most of the members of the service had not behaved patriotically and with loyalty, the union would have collapsed. “Civil services and visionary national leaders built the structure for a new modern India and for its all-round development.”
C. Under Indian Republic (Post 1950):
After Independence many national leaders did not like the idea of building up a new India by the very machinery that was till now hampering and countering the freedom movement. The main reason for continuation of the same administrative machinery was that during the last days of British rule, there were many pressing problems before the nation.
Situation became worst at the dawn of independence because of departure of British and Muslim officers from higher services, partition of the country, Pakistan’s incursion into Kashmir and annexation of widely spread conglomeration of provinces and princely states in the Union of India, which made any drastic change impossible.
Along with it, there were other difficulties too, such a communal tension, lawlessness, Railway and Postal strikes, short-supply of goods and the danger of another famine in near future, arose. Events, invariably unplanned, were moving so fast that there was no question of even attempting to supervise their course. Therefore, the nation had no alternative but to leave the things to time.
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Shri C. Rajagopalachari had told the nation right in the beginning that performance of bureaucracy depended on the calibre of officials, who are appointed to its strategic posts. “For any administration to be good and efficient, as a whole, we want right type of men. The quality of men placed in position is more important than laying down of rules and methods of operation”.
In a large country like India, where there have been perplexing diversities in geography, language, race and culture, which have existed through ages and pervaded every aspect of life. In such a situation, it becomes necessary to evolve some standards and guidelines, whereby the interest of the nation, as a whole, is taken care of.
Since India became a Republic (1950), the aims, objectives and the role of government changed completely. The Constitution laid emphasis on national reconstruction and development—a shift from the traditional task of only maintenance of law and order and revenue collection. The objectives of the Government were now to launch a massive attack on five major evils of the society—Want, Disease, Ignorance, Squalor and Idleness—and to secure to all its citizens “Justice—social, economic and political”.
This change had brought about many new responsibilities pertaining to economic development and social welfare on the shoulders of its civil services. The civil service was supposed to come closer to masses and feel the agony of the millions of underfed, under-read and under-clothed citizens and then design strategies, formulate and execute policies, take right and timely decisions, initiate action and remedial measures for improving the lot of masses and upliftment of the country as a whole.
Role of bureaucracy during Nehru Patel Era:
During 1950’s, the performance of IAS was at the best. It represented one of the finest services in the world. The image, it acquired immediately after the independence, was that of effective bureaucracy under the able, sincere and visionary leadership of Patel, Nehru and Pant.
They remained as honest, upright and efficient, as the society around them had been or as their political masters wanted them to be. Higher civil services of Government of India represented one of the finest services in the world. There was a perfect tuning between the leadership and administration.
“Their vigilance, integrity and honesty saved the administration from falling victim to wrong practices. Political interference, in matters of day to day administration; was not much. The administrators were encouraged to give their free and frank opinion. They were free to work out details and implement their decisions. Only when something was found going wrong or implementation got unduly delayed, the political leadership interfered in administrative matters. The political and administrative wings of the Government together put the nation on the path of progress, accommodating diverse viewpoints and interests without bias.”
In the early 1960s, besides executive functions, normal development work, basic planning and advent of five-year Plans exposed the administration to economic aspects of development. For the first time, officials were interacting with the economic functions. The Industrial policy Resolution of 1956 laid stress on the development of heavy industries with public sector given an important role to play in the development of economy. The sincere efforts, organizing capacity and drive of bureaucracy put India at the tenth rank amongst the nations of the world in terms of industrial output by 1960.
“The administrators of this period were criticized for their ivory tower life style, which alienated the bureaucrats from common man. However, now it is being realized that ‘ivory tower life style’ prevented bureaucrats from succumbing to outside pressures and helped them to remain honest, upright and impartial. But at the same time, alienation from common-man, while on work and therefore, ignorance about the pulse of public started making bureaucracy weaker day-by-day. Unfortunately, after independence and progressively over the years, higher civil services at the centre began losing its sheen.”
“A good percentage of our public servants maintain and function in accordance with strict standard of integrity.” On the whole, during this period, inner restraint and control had effectively led the officials to preserve the honour and fair name of the service and saved it from getting corrupt or spoiled by outside powerful agencies.
Mrs. Indira Gandhi Era (1965 to 1980):
The period from 1965 to 1980 was an era of committed bureaucracy. With many of the old visionary leaders having gone from the national and state scene in the sixties, a rot started setting up rapidly in the administrative set up. During mid-sixties, political climate at provincial level started changing.
“The absolute authority intoxicated the politicians, making them trample over everything including the democratic institutions – bureaucracy being one of them. The change in the political complexion of the nation was reflected in the performance of Administrative Service and its capacity to work impartially without any fear or favour.”
The leaders of that time could not appreciate the value of efficient and impartial civil services and did precious little to check deteriorating standards of the service. The officers were not expected to be as loyal to the Constitution, as they had to be to their respective ministers. Bureaucracy gradually became more committed to the ruling party.
On a sustained and systematic basis, the process of committed bureaucracy flourished, thus undermining the integrity, values, ethos and confidence of the service. The service of IAS, proven competence and integrity, too found it comfortable to toe the footsteps of the political leaders. They became a willing tool in the hands of politicians.
“Now professionalism of officers depends on amorality – meaning capacity to get done, what superior authorities want to be done and proximity – meaning getting closer to people having authority and position. Right or wrong, presence of laws, rules and regulations were irrelevant to smart officers. During Emergency in 1975, the trusted officers of the Congress Party were placed on crucial positions. Slowly, but steadily the service lost its capacity to be the true agents of healthy change.”
Bureaucracy during 1980’s:
It was the regime of growing terrorism, communal problems and economic development. Transfers, postings, accelerated promotions, suspension; denial of promotions had already bent the civil service to a great extent. Compromises, delays in decision making and shielding unjust acts of political masters by subverting rule of law, flourished in full during this period. One of the leading features was the deep involvement of a core group of civil servants in scandals. The crisis management and cover up operations were undertaken quite unsuccessfully by politicians.”
“The rapid growth in education, liberal grant of scholarship and stipends, general improvement in the social standard and cultural values of rural people, rural development, economic and other concessions to weaker sections brought a gradual shift in the recruitment base from diverse background. It was hoped that people coming from widely varied background carrying with them diverse experiences would be better placed to appreciate the ground realities of the nation. The wider, the spread of recruitment net, the larger would be the talent base and richer would be the service.”
However, it belied the hope and made the service more vulnerable to political pressures and other extraneous influences. There was a fall in officer like qualities, which made the service object of reducible and contempt in the eyes of public.
The political complexion of the nation underwent a revolutionary change after the fall of Rajiv Gandhi’s Government and then disappearance of Nehru-Gandhi family from the political scene. The era of instability started. The last time a general election in India producing a clear Parliamentary majority was in 1984. Since 1989, the Governments are acutely handicapped by their minority status.
Bureaucracy of 21st Century:
The beginning of 21st century has seen the steel frame shaking under political pressure. Transfer has become a powerful weapon in politician’s hands enough to make a bureaucrat compliant. “….Rarely are factors like competence, aptitude, past experience and public spirit taken into account while making appointments to responsible posts. Instead, these attributes are often a disqualification. Pliable functionaries, who are not overburdened with ethics, are handpicked for plum postings.” There is a general acceptance that “toeing the line is better than standing up for principles and paying the price”.
“In the fifties and sixties, bureaucrats could live comfortably on their salaries. Not any longer. More and more bureaucrats today use the system to make money. Whatever salaries officials get is not enough for them to live the way they want in the modern world. It is one of the reasons for increased corruption, casteism and unhealthy competition to get hold of a few influential posts in the corridor of power, so that they can make more money. It has corroded the steel frame beyond repair.”
Bureaucracy – 8 Characteristics or Features of Bureaucratic Organisation
The basic characteristics or features of Bureaucratic organisation are discussed below:
1. Functional Specialisation – A work is to be divided into various parts by adopting the principle of division of labour. Each part of work is assigned to a separate person who is specialised in that type of work. Each person performs his work in a pre-determined manner. In this way a high degree of functional specialisation is obtained.
2. Hierarchy of Authority – A sub-ordinate is under the control and supervision of one of the superior authorities. A subordinate is responsible to his superior for his own decisions and actions. A clearly defined hierarchy of authority is needed to give commands for proper discharge of duties at various levels. Each superior has control over his subordinates with a right for making a report to higher authorities in a specified manner if needed.
3. Rules and Regulations – Well defined rules and regulations are laid down to govern the work behaviour of employees. The rules and regulations are framed to ensure consistency in the performance of work. A special training is provided to impart knowledge of rules and procedures.
4. Rights and Duties – Each and every employee can understand his rights and the duties to be performed. The procedure is to be taken into account while performing the work. Procedures are laid down for orderly performance of work.
5. Technical Competence – Qualification is prescribed for each and every job/position. Selection and promotion is followed on the basis of technical competence possessed by the candidates.
6. Fixation of Procedure – A procedure is fixed or framed by considering situations or work. Each procedure must be time-tested and adoptable by any person.
7. Record-Keeping – Every decision and action is taken only after writing in number of documents. Both draft form and original documents are preserved for future reference.
8. Impersonal Relations – Rewards should be given on the basis of efficiency. Family relationships or any other relationships should not influence presentation of awards. Personal preferences, emotions and prejudices should not influence the functioning of an organisation. This type of unbiased approach, certainly, will ensure maximum efficiency.
Max Weber said that bureaucracy is the best form of organisation and suitable for any nature of business because it crates scope for the proper channelisation of human energy and mechanical energy. Under bureaucracy, the organisation becomes the most perfect. The degree of bureaucratisation is higher in government departments and in army than in private business and social organisations (non-profit organisation i.e., voluntary organisation). Weber wants to improve the performance of the organisation gradually by following bureaucracy.
Bureaucracy – Kinds of Bureaucracies Identified by Mintzberg
Mintzberg identified two kinds of bureaucracies:
(i) Weberian or Machine bureaucracy, and
(ii) Professional bureaucracy.
(i) Weberian or Machine Bureaucracy:
Weber’s ideal bureaucracy is suitable in relatively stable environment and for manufacturing, service and government organisations. Its characteristics such as rules and regulations, specialisation, chain of command, impersonality, etc.
(ii) Professional Bureaucracy:
When the external environment is complex and the internal operations are also complex, there is a tendency on the part of the organisations to become professionally bureaucratic.
Professional bureaucracy is characterized by the following features:
(a) Operating tasks are standardised and complex.
(b) Decentralized decision-making and less degree of formalisation.
(c) Emphasis on professional competence and authority.
(d) Standards of performance are set by professional bodies.
The examples of professional bureaucracies are hospitals, firms of accountants and consultancy firms. The professional bureaucracy relies on standardisation of skills as the primary means of coordination. There is much horizontal specialisation by professional areas of expertise but little formalization.
Decision-making is decentralized and takes place where the expertise is. The only means, of co-ordination available to the organisation is standardisation of skills—the professionally trained employees. Although it lacks centralisation, the professional bureaucracy stabilizes and controls its tasks with rules and procedures developed in the relevant profession.
The adhocracy is typically found in dynamic organisations engaged in highly technical fields where the environment is complex and dynamic and where it is essential to foster innovation. Decision-making is spread throughout the organisation, and power is in the hands of experts.
There is horizontal and vertical specialisation but little formalisation, resulting in an organic structure. Coordination is achieved by mutual adjustment through frequent personal communication and liaison. Specialists are not grouped together in functional units but are deployed into specialized market- oriented project teams.
Bureaucracy – Rationale
Rationale of bureaucracy are as follows:
(i) A Government is run by general processes – (a) The process of politics, which consists of the activities of elected representatives of the people and (b) the process of administration to assist politically elected ministers, which consists of the activities of permanent bureaucrats or civil servants.
(ii) Bureaucrats are professionally recruited and trained in various disciplines – functional, technical and specialist as well as managerial and generalist such as police force to maintain law and order, a diplomatic service for external affairs, technical services for Public Works Department or defence, Railways and Customs etc.
(iii) The administrative machinery is subordinate to the political arm of the Government. But in practice, it plays a very important role. It has become a very potent and vital element of any Government all over the world.
(iv) It is an indispensable part of each and every political system, be it communism or socialism or capitalism. It can exist in a type of society, be it a dictatorial or a democratic society. To run the administration of a country in effective wow, a band of capable officers—efficient, prompt, just and sympathetic—belonging to different disciplines of civil services are required.
(v) Bureaucracy is meant for exclusive and specialist nature of work of the Government. The Government needs for more expert knowledge in administration for improving the quality of life, the importance of administrative civil services increases day-by-day.
(vi) Bureaucracy is concerned with strategic points in every administrative set-up; there are certain positions or posts, which might be called as strategic policies to maintain the standard of administration. Bureaucrats try to maintain this standard as they get professional training.
Bureaucrats are appointed on a long-term basis. They provide continuity in the governance of the nation. The civil service is, therefore, an indispensable part of any Government. However, Politicians come for a short period and go.
Bureaucracy – Advantages and Benefits of Bureaucratic Form of Organisation
Bureaucratic form of organisation gives certain benefits or advantages to the management.
They are briefly discussed below:
1. Specialisation – Specialisation is achieved by assigning a specific task to each and every person.
2. Employee Behaviour – Under bureaucracy, policies, rules and regulations are well framed and they could be applied to any type of company. It ensures consistent employee behaviour. The behaviour and reactions of employee are easily predictable. It facilitates the management to implement any project.
3. Structure – The structure or form of bureaucracy is created by fixing the duties and responsibilities. Besides, it specifies smooth relationships among employees. The fixed structure facilitates the easy functioning of the organisation.
4. No Conflict – Duties and responsibilities of each employee are clearly defined and explained. It avoids the overlapping or conflicting of job duties.
5. Advance Decision – A criteria is fixed to take a decision in routine matters. So, the decision maker can take a decision well in advance.
6. Optimum Utilisation of Human Resources – Hiring, selection and promotion are based on the technical competence possessed by the candidate i.e., purely on merit and expertise. This ensures the correct matching of the right worker with the right job. It helps the management to utilise the available human resources to the maximum.
7. Democracy – Under bureaucracy, no employee enjoys any privilege. All employees are treated equal. This makes the organisation more democratic.
8. Perpectual Succession – The job or position is emphasized rather than the person. No rules and regulations are relaxed for any employee. At the same time, no new rules and regulation are imposed on any employee. The organisation will continue even after the individual leaves the organisation.
Bureaucratic structure is intended to have the following benefits:
(i) Specialisation:
There is a systematic division of duties, rights and powers. Every member is specialised in a particular function and knows the limits of his job. Each official is responsible for a specific function and he is given matching authority to carry out his responsibility. The means of compliance of his instructions at his disposal are strictly limited to his area of specialisation.
(ii) Well-Defined Structure of Relationship:
A clearly-defined hierarchy is created through delegation of authority. Every office and every official are part of this hierarchy. Each official exercises supervision and control cover his subordinates with provisions for appeal to higher authorities. All activities follow the principle of hierarchy. Each position in the hierarchy has complete jurisdiction on a particular function in terms of both authority and competence.
(iii) Uniformity of Action:
Detailed rules and procedures are prescribed in writing for carrying out all administrative functions. These rules and procedures are designed to guide the employees and to ensure uniformity of operations. Officials are accountable for the use of official rules and procedures for the performance of their tasks.
(iv) Rationality of Behaviour:
The administrative behaviour is governed by rule of law rather than rule of man. This implies that the rules are framed on the basis of technical competence and rational considerations. Further, the performance of officials is judged on the basis of such rules which are known to them and to their superiors. Thus, each person knows clearly and precisely what is expected of him.
(v) Predictability of Behaviour:
There is a high degree of predictability of administrative behaviour in the bureaucratic structure. This results from the reliability of the formal relations that exist between various officials and employees throughout the organisation. Every official is responsible for carrying out the duties assigned to him.
This helps in the predicting the production capacity of each office or unit. Moreover, employees work in the same department for a reasonably long period. The departmental manager is able to understand the behaviour of subordinates better. This also brings about predictability.
(vi) Efficiency:
Bureaucracy intends to produce efficiency through rationality, consistency and predictability of behaviour. Division of labour and specialisation also lead to efficiency in terms of goal achievement and exercise of control. Bureaucratic structure emphasises rules and regulations which are also intended to increase efficiency of operations.
Bureaucracy – Disadvantages and Dysfunctions
A coin has two sides. So, bureaucracy has disadvantages or limitations also.
The disadvantages or limitations of bureaucracy are given below:
1. Rigidity – Rules and regulations are very rigid and inflexible under bureaucracy. The initiative and creativity of employees are discouraged with rigid compliance of rules and regulations. There is a resistance to change on the part of employees also. The reason is that bureaucracy provides a scope to employees to shink responsibility for failures.
2. Red Tapism – There is too much red tapism and paper work. Every decision is taken after having detailed discussion with many persons. These discussions are recorded in a number of documents. These documents cannot be cancelled after having been taken. Bureaucracy has a lot of paperwork.
3. Displacement of Goal – An organisation has been divided into various units i.e., sub- units. The objective of sub-unit is also framed by the top management. A person who is in charge of a sub-unit may try to achieve its objective reflecting the overall objectives of the organisation. In such a case, the management finds it very difficult to achieve the goals of the organisation.
4. Impersonal Nature of Work – Service with devotion is not expected from the employees. It does not faster in them a sense of belongingness. The employees do not care about the well-being of the organisation. This is because of impersonal nature of work.
5. Failure of Co-Operation and Co-Ordination – Organisational rules and regulations are given priority over situation. Jobs are performed according to norms and procedures. It hampers the free flow of work. So, this restricts the management from getting the mutual co-operation and co-ordination.
6. No Mutual Understanding – Personal feelings, views, needs and opinions are not given any importance or consideration under bureaucracy. Contractual obligations are given much importance over human relations. This results non-existence of mutual understanding.
7. Mechanical Treatment – Initiative and creative thinking of an employee are not recognised. Employees are treated like machine and not like individuals.
8. Empire Building – Every superior tries to increase the number of his subordinates. The reason is that the maximum number of subordinates is considered a symbol of power and prestige. In other words, a person wants to have a number of followers while walking on a road. It is a symbol of prestige i.e., empire building.
Dysfunctions of Bureaucratic Structure:
Bureaucracies have certain unintended consequences or limitations also.
These are discussed below:
1. Delay and Red Tapism – Bureaucratic procedures involve inordinate delays and frustration in the performance of tasks. The procedures are typically valued, perpetuated and multiplied for their own sake as also to pass the buck.
2. Rigidity – Rules and regulations in a bureaucracy are often rigid and inflexible. They encourage status quo and breed resistance to change. Rigid compliance with rules and regulations discourages initiative and creativity. It may also provide the cover to avoid responsibility for failures.
3. Goal Displacement – Rules and procedures framed to achieve organisational objectives at each level become an end in themselves. When individuals holding office at lower levels pursue personal objectives or objectives of sub-units, the overall objectives of the organisation may be neglected. Once the organisational objectives get so displaced, there might be a question mark on the existence of the organisation.
4. Lack of Human Touch – A bureaucratic organisation stresses mechanical way of doing things. Organisational rules and regulations are given priority over individual’s needs and emotions. The office a person holds is more important that the person himself. Contractual obligations are given primacy over human relations.
5. Compartmentalisation of Activities – Jobs are divided into watertight categories which restricts people from performing tasks that they are capable of performing. It also encourages preservation of jobs even when they become redundant. The sequential flow of work may contain an element of idle time at every level. Bickerings over respective jurisdictions of members may hamper co-operation and coordination between various sub-units of the organisation.
6. Empire Building – People in a bureaucracy tend to use their positions and resources to perpetuate self-interests or the interests of their sub-units. Every superior tries to increase the number of his subordinates as if this number is considered a symbol of power and prestige. It is hard to destroy bureaucracy even if it has outlived its utility.
7. Excessive Paperwork – Bureaucracy involves excessive paperwork as every decision must be put in writing. All documents have to be maintained in their draft and original forms. This leads to a great wastage of time, stationery and space.
Despite its drawbacks, bureaucracy continues to be an integral and concomitant feature of modern organisations. It cannot be wished away. It is, therefore, necessary to understand it and to overcome its negative aspects through proper reckoning of individual needs and organisational goals.