BUREAUCRACY

A bureaucracy is any organization composed of multiple departments, each with

policy- and decision-making authority. Bureaucracy is all around us, from
government agencies to offices to schools, so it's important to know how
bureaucracies work, what real-world bureaucracies look like, and the pros and
cons of bureaucracy.

Bureaucracy
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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.

Contents:
1. Meaning of Bureaucracy
2. Nature of Bureaucracy
3. Historical Perspective of Indian Bureaucracy
4. Characteristics or Features of Bureaucratic Organisation
5. Kinds of Bureaucracies
6. Rationale of Bureaucracy
7. Advantages and Benefits of Bureaucracy
8. 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.
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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.
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.
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.

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:
(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.
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:
(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.
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.
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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.
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.
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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.
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 co-
ordination. 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.
Adhocracy:
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.
Benefits of Bureaucracy:
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.