Preliminary Exam Summary; Section: Organizations By Eileen Bevis CITATION: Weber, Max. Economy and Society. Edited uent!

er "ot! and #laus Wittic!. $e% &or': Bedminister Press, ()*+, vol. (, #once,tual Ex,osition, ,gs. )-*.(//-, 0Bureaucracy1. ABSTRACT: 2!e c!a,ter on 0Bureaucracy1 is in vol. 3 o4 E5S, along %it! six ot!er c!a,ters on various ty,es o4 domination, legitimacy, and aut!ority. W!at you s!ould 'no%, context.%ise: bureaucracy is t!e ty,ical ex,ression o4 rationally regulated association %it!in a structure o4 domination.( 2!is c!a,ter is a sc!ematic outline o4 t!e structural c!aracteristics, origins 67 necessary conditions8, and e44ects o4 bureaucracy. 9ully.develo,ed bureaucracies are im,ersonal, 0ob:ective,1 indestructible, indis,ensable, born out o4 in!erent tec!nical su,eriority, cause social leveling, and boost rationalism ;among M<$& ot!er t!ings=. SUMMARY: >. #!aracteristics o4 a Modern Bureaucracy, a.'.a. Modern 0O44icialdom1 6)-*.)-+8 <. Jurisdictional areas are generally ordered by rules 7 la%s 7 administrative regulations 6)-*8. (. "egular activities re?uired by t!e bureaucracy are assigned as o44icial duties. @. 2!e aut!ority to command t!e disc!arge o4 t!ese duties is distributed in a stable %ay and is delimited by rules concerning acce,table coercive means. 3. 2!e regular and continuous 4ul4illment o4 t!ese duties is ,rovided 4or in a met!odical %ay. These three elements constitute: . a bureaucratic agency in t!e s,!ere o4 t!e state . a bureaucratic enterprise in t!e s,!ere o4 t!e ,rivate economy Bureaucracy is 4ully develo,ed only in modern state or modern economy 7 ca,italism. B. 2!ere is a clearly establis!ed office hierarchy system o4 su,er. and sub.ordination in %!ic! t!ere is a su,ervision o4 lo%er o44ices by !ig!er ones and regulated c!annels o4 a,,eal 6)-A8. 2!e 4ully develo,ed bureaucracy is 0monocratically organized1 ;ruled by a single ,erson, suc! as a Prime Minister=. >deally, t!e !ig!er aut!ority never ta'es over t!e lo%er aut!orityBs business ;bureaucracy %ould t!en Cs!rin'B=; instead, lo%er aut!orityBs o44ices %ill al%ays be 4illed in t!e case o4 a vacancy ;bureaucracy t!us al%ays and only gro%s larger=. #. Management is based on %ritten documents and a sta44 o4 subaltern o44icials and scribes. 2!e o44icials ,lus t!eir 04iles1 and materials ma'e u, a ureau. >n ,rinci,le, o44icial bureau activity is 'e,t se,arate 4rom ,rivate !ome li4e ;4or
(

2!e ot!ers: traditionally ,rescribed social action is ty,ically re,resented by patriarchalism; charismatic structure o4 domination rests u,on individual aut!ority %!ic! is based neit!er u,on rational rules nor u,on tradition 6)-D8

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relevance o4 t!is ,oint, t!in' EE= 6)-A8. F. O44ice management usually ,resu,,oses thorou!h" s#eciali$ed trainin! 6)-+8. E. O44icial activity demands full %or&in! ca#acity o4 t!e o44icial in a 4ully develo,ed bureaucracy 6)-+8. 9. Management o4 t!e o44ice 4ollo%s !eneral rules, %!ic! are ,retty stable, ex!austive, and learnable 6)-+8. Gno%ledge o4 t!ese rules constitutes s,ecial technical e'#ertise. >>. 2!e ,osition o4 t!e o44icial %it!in and outside o4 t!e bureaucracy 6)-+.)*38 <. O44ice Holding as a Iocation a. 2rue because t!ere is a re?uired, ,rescribed course o4 training and exams %!ic! ta'es u, 4ull %or'ing ca,acity 4or a long time, !as s,ecial exams b. <lso true because ,osition o4 t!e o44icial is seen as a 0duty1Jo44icial doesnBt o%n ,osition, but rat!er agrees to 4ul4ill 0impersonal and functional #ur#oses1 o4 o44ice in exc!ange 4or secure guarantee o4 existence. B. 2!e Social Position o4 t!e O44icial a. 2!e modern o44icial al%ays strives 4or and usually attains a distinctly elevated social esteem vis.a.vis t!e governed. O44icials !ave !ig!est social ,osition %!ere t!ere is demand 4or ex,ert administration and t!ere is a strong !old o4 status conventionsKsocial di44erentiation 6e.g. not in L.S.8 6)-).*/8. b. Elected o44icials !old autonomous ,ositions vis.M.vis t!eir su,ervisors. <,,ointed o44icials 4unction more accurately t!an elected o44icials because t!eyBre been selected 4or 4unctional ability. Ho%ever, use o4 un?uali4ied elected or a,,ointed.by.elected o44icials usually bac'4ires on ,arty ;exce,t in #!icagoNN=. 9ully democratic elections o4 administrative c!ie4s and t!eir subordinate o44icials usually endangers su,ervision o4 o44icials and ,recise 4unctioning o4 t!e bureaucracy 6)*(8. c. 2!e measure o4 Cinde,endenceB legally guaranteed by Ctenure 4or li4eB is not al%ays a source o4 increased social status 6e.g. socially.ine,t, inde,endent :udges vs. socially.e,t andKbecause socially de,endent because removable military o44icers in ermany8 6)*@8. d. Bureaucratic o44icials earn a salary, not a %age, and t!is salary is based on ran'Kstatus and maybe lengt! o4 service, not on !ours %or'ed. 2!ey are also guaranteed a ,ension 6)*38. e. 2!e o44icial is set 4or a (career) u, t!e !ierarc!y o4 t!e bureaucracy 6u, to !ig!er o44icers, more im,ortant status, and !ig!er salary8 6)*38. >>>. Monetary and 9inancial Presu,,ositions o4 Bureaucracy 6)*3.)*)8 <. 2!e develo,ment o4 t!e money economy is a ,resu,,osition o4 a modern bureaucracy ;di44icult to ,ay o44icials %it! 0in 'ind1 ,ayments a4ter a certain ,oint=, t!oug! !istorically t!ere %ere large, %ell.develo,ed bureaucracies t!at used in 'ind ,ayments 6Egy,tBs $e% Gingdom, later "oman Princi,ate, "oman #at!olic #!urc!, #!in ,ost.S!i H%angti until ,resent8 6)*3.*D8. B. Iarious asides on !o% to turn Cin 'indB ,ayments into cas! via oneBs o44icial ,osition, %!y direct ,urc!ase o4 o44ices occurs 6need not :ust cas! but ca,ital8. One de4inition o4 %ord t!at Weber uses 4re?uently: ,rebends and ,rebendal organization re4er to all cases o4 li4e.long assignment to o44icials o4 rent ,ayments deriving 4rom material goods or landKrent, in com,ensation 4ro t!e 4ul4illment o4 real or 4ictitious

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duties o4 o44ice 6)**.*A8. #. 2!is besto%al o4 material endo%ments 6aside 4rom salaries8, or 4urt!er o4 ,olitical rig!ts, to o44icials %ea'ens t!e bureaucratic mec!anism, es,ecially !ierarc!ical aut!ority 6)*A8. F. Status incenti*es and an assured salary" career trac& are su#erior to ar itrary" #hysical coercion 6e.g. enslavement8 4or t!e success and maintenance o4 a rigorous mec!anization o4 t!e bureaucratic a,,aratus 6)*A.*+8. E. Bureaucracy is de4initely tied to the a*aila ility of continuous re*enues to maintain it. Suc! revenues come eit!er 4rom ,rivate ,ro4its, land rents, or taxation 6)*+8. 9ull taxation system ,resu,,oses money economy, so %!ile not necessary, taxation system, its resulting administrative re?uirements, and ,rere?uisite money economy are certainly !el,4ul and conducive to bureaucratization 6)*+8. >I. 2!e Ouantitative Fevelo,ment o4 <dministrative 2as's 6)*).)A(8 <. 2!e 4irst basis o4 bureaucratization is t!e +uantitati*e and e'tensi*e increase o4 administrative tas's ;t!e secondN ?ualitativeP:ust %aitQ= 6)*)8. B. >n ,olitics, t!e big state and t!e mass ,arty are t!e classic 4ields o4 suc! develo,ment 6)*)8. >n ,articular, t!e large modern state is tec!nically de,endent u,on a bureaucratic basisJt!e larger and more ,o%er4ul t!e state, t!e greater suc! de,endence 6)A(8. I. Oualitative #!anges o4 <dministrative 2as's 6)A(.)A38 <. 2!e second basis o4 bureaucratization, t!e +ualitati*e and intensi*e increase o4 administrative tas's, is also t!e more signi4icant 6)A(8. >ntensity: t!e assum,tion by t!e bureaucracy o4 as many tas's as ,ossible 4or continuous management and disc!arge in its o%n establis!ment 6)A@8. B. 2!e creation o4 standing armies, ,o%er ,olitics, develo,ing ,ublic 4inances, and more recently, t!e com,lexity o4 civilization !ave all !istorically contributed to t!e develo,ment o4 bureaucracy 6)A@8. #. Economic: >ncreasing ,ossession o4 consumer goods and o4 a so,!isticated tec!ni?ue o4 4as!ioning external li4e a44ects t!e standard o4 living and increases sub:ective sense o4 indis,ensability o4 ,rovision 4or %ants t!at %ere ,reviously un'no%n 6)A@8. 6<lso, economic ultimately determine cultural in4luences to%ard bureaucracy.8 F. Political: increasing demands 4or order and ,rotection 6,olice8 exerts in4luence to%ard bureaucratization 6)A@8. E. 2ec!nical: modern means o4 communication, s,ur direct gro%t! o4 state administration because can only be managed ,ublicly and s,ur indirect gro%t! because contribute to develo,ment o4 inter.local goods tra44ic and to tem,o o4 administrative reactions 6)A3, )AD8. I>. 2!e 2ec!nical Su,eriority o4 Bureaucratic Organization over <dministration by $otables 6)A3.)+/8 <. (The decisi*e reason for the ad*ance of ureaucratic or!ani$ation has al%ays een its #urely technical su#eriority o*er any other form of or!ani$ation) 6t!at %ould be collegiate, !onori4ic, and avocational 4orms8 6)A38 ;contrast %it! Meyer and "o%an=. Bureaucracy !as o,timized ,recision, s,eed, unambiguity, 'no%ledge o4 t!e 4iles, continuity, discretion, unity, strict subordination, reduction o4 4riction and o4 material and ,ersonal costs 6)A38. B. Bureaucracy also o44ers un#aralleled o ,ecti*ity 6disc!arge according to calculable

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rules and %it!out regard 4or ,erson8 in t!e carrying out o4 administrative 4unctions 6)A-8; t!is 0de!umanization1 increases as bureaucracy develo,s 6)A-8. #. Wit! com,lexity, s,ecialization, and ob:ectivity come calls 4or a detac!ed (e'#ert) 6)A-8. F. <side on Gadi Rustice and #ommon Sa% com,ared to "oman Sa%. Gadi :ustice consists o4 0in4ormal :udgments rendered in terms o4 concrete et!ical or ot!er ,ractical valuations1; em,irical :ustice, or common la%, consists o4 4ormal :udgments rendered by dra%ing on analogies and de,ending on and inter,reting concrete ,recedents 6)A*8. Only Roman la% consists of formal ,ud!ment rendered y su sum#tion under rational conce#ts or -rules of decision. 6)A*8. a. Fi44erences in t!e develo,ment o4 substantive la% in ermany and England rest not on economic but on ,olitical 4actorsJstructures o4 domination 6)A*8. b. <lt!oug! tec!nical 4actors o4 trial ,rocedure contributed to develo,ment o4 rational la%, it too' bureaucratization o4 t!e ,olity to really rationalize "oman la% into a closed system o4 conce,ts to be !andled scienti4ically 6)A+8. E. Rust because Cex,ertnessB is valued doesnBt mean general and abstract norms rule 6)A+8. Everybody is attac'ing t!e idea o4 suc! a Cla% %it!out ga,sB %!ere t!ere is no room 4or t!e creative discretion o4 t!e o44icial, t!oug! t!ey arenBt advocating return to Gadi :ustice but rat!er rational la% %!ere 0ob:ective1 standard o4 0reasons o4 state1 stands be!ind every administrative act 6)A)8. Suc! raison dtat is 4used inse,arably %it! instincts o4 bureaucracy 4or maintaining o%n ,o%er 6)A)8. $ote also t!at rational la%, in combination %it! democratic currents, doesnBt al%ays turn out substantively 4or t!e democratic good and minimize domination 6)A).+/8. I>>. 2!e #oncentration o4 t!e Means o4 <dministration 6)+/.)+38 The ureaucratic structure !oes hand in hand %ith the concentration of resources" a.'.a., t!e material means o4 management in t!e !ands o4 t!e master 6)+/, )+@8. <. Historically, t!e bureaucratization o4 t!e army !as every%!ere occurred as army service s!i4ted 4rom t!e ,ro,ertied to t!e ,ro,erty.less 6!a,,ens as culture and economy develo, and ,ro,ertied men get too busy and un4it 4or %ar8. Wit! bureaucracy, armies %ere able to become larger, ,ro4essional, and standingJeit!er national or ,rivate 6mercenary8 6)+(8. B. Similarly, in ot!er s,!eres, including state and university, a bureaucracy ,uts its entire administrative ex,ense on t!e budget and ,rovides t!e lo%er aut!orities %it! t!e current means o4 ex,enditure, t!e use o4 %!ic! u,,er management regulates and controls 6)+@.+38. I>>>. 2!e Sevelling o4 Social Fi44erences 6)+3.)+A8 <lt!oug! bureaucracy !as 0indubitable tec!nical su,eriority,1 its gro%t! !asnBt been smoot!. /el#in! and hinderin! influences to ureaucrati$ation include: <. 2!e leveling o4 social and economic di44erences contribute to bureaucratization. 9or instance as %it! modern mass democracy 6because o4 c!aracteristic democratic ,rinci,le o4 abstract regularity o4 t!e exercise o4 aut!ority, %!ic! is a result o4 t!e demand 4or Ce?uality be4ore t!e la%B and !orror o4 C,rivilegeB and doing business Ccase by caseB 6)+38. $ecessitates ,aid sta44, t!is mass democratic state, bt% 6)+D8. B. But democracy also inevitably comes into con4lict %it! bureaucratic tendencies t!at

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%ere ,roduced by democracyBs 4ig!ts against noblesJdemocracy strives to s!orten o44ice terms and to !ave more candidate c!oices t!an only t!ose %it! s,ecial ex,ert ?uali4ications, %!ereas bureaucracy li'es closed grou,s o4 status o44icials t!at arenBt universally accessible and t!e aut!ority o4 o44icialdom against ,ublic o,inion 6)+-8. 0Femocracy1 as suc! is o,,osed to t!e 0rule1 o4 bureaucracy 6))(8. #. By 0,assive democratization1 Weber means a leveling o4 t!e governed; 4or exam,les o4 %!ere it !a,,ened see )+-.+* ;only useable i4 youBre already 4amiliar %it! t!ose exam,les bKc no detail given=. F. Motives be!ind suc! ,assive democratization are economic 6e.g. economically. determined origin o4 ne% classes8 andKor ,olitical 6e.g. 4oreign a44airs8 6)+*8. E. W!ere older structural 4orms %ere already !ig!ly tec!nically develo,ed, bureaucracy %as slo%er to develo, because tec!nically su,erior im,etus %as %ea'er 6)+A8. >T. 2!e Ob:ective and Sub:ective Bases o4 Bureaucratic Per,etuity 6)+A.)+)8 Once 4ully establis!ed, bureaucracy is one o4 t!e !ardest social structures to destroy 6)+A8. Bureaucracy is t!e means o4 trans4orming social action into rationally organized action and t!us is a 0,o%er instrument o4 t!e 4irst order 4or one %!o controls t!e bureaucratic a,,aratus1 6)+A8PStill as'ing %!y bureaucracy !as so muc! ,o%erN Because (under other%ise e+ual conditions" rationally or!ani$ed and directed action is su#erior to e*ery &ind of collecti*e eha*ior and also social action o##osin! it0 1here administration has een com#letely ureaucrati$ed" the resultin! system of domination is #ractically indestructi le) 6)+A8. 2!e individual bureaucrat is 0c!ained to !is activity in !is entire economic and ideological existence. >n t!e great ma:ority o4 cases he is only a small co! in a ceaselessly mo*in! mechanism %!ic! ascribes to !im an essentially 4ixed route o4 marc!1 6)++8. Lnless !e is at t!e very to,, !e cannot start or sto, anyt!ing. 2!e ruled cannot dis,ense %it! t!e bureaucratic a,,aratus once it exists, 4or sto,,ing it results in c!aos 6and t!e masses de,end es,ecially on t!e bureaucratic organizations o4 ,rivate ca,italism 4or t!eir material 4ate8 6)++8. 2!ey cannot re,lace it easily because it 0rests on ex,ert training, a 4unctional s,ecialization o4 %or', and an attitude set on !abitual virtuosity in t!e mastery o4 single yet met!odically integrated 4unctions1 6)++8. Because bureaucracies are indis#ensa le and im,ersonal, t!ey are *ery easy to steer once one has !ained control o*er themJeven i4 t!e enemy ta'es over, it is in everybodyBs best interest to 'ee, t!e t!ing runningJma'ing 0revolution,1 in t!e sense o4 t!e 4orce4ul creation o4 entirely ne% 4ormations o4 aut!ority, more and more im,ossible 6)+)8. T. 2!e >ndeterminate Economic #onse?uences o4 Bureaucratization 6)+).))/8 2!e conse?uences o4 bureaucracy de,end u,on t!e direction %!ic! t!e ,o%ers using t!e a,,aratus give to it, t!oug! very o4ten, 0cry,to.,lutocratic distribution o4 ,o%er1 results 6)+)8. 2!e economic effects o4 bureaucracy are *aried, t!eir direction de,ends on ,resence o4 ot!er 4actors. 2!e social effects, !o%ever, are le*elin! 6))/8. T>. 2!e Po%er Position o4 t!e Bureaucracy <. Being 4unctionally indis,ensable does not necessarily translate into lots o4 ,o%er 4or bureaucracy. Ho%ever, t!e #o%er #osition of a fully de*elo#ed ureaucracy is

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al%ays !reat, under normal conditions 0overto%ering1 because bureaucracyBs ,olitical 0masters1 4ace it as dilettantes to an ex,ert 6))(8. B. Bureaucracies are naturally secreti*e about t!eir 'no%ledge and intentions, %!et!er out o4 4unctional or ,ure ,o%er motives 6))@.)38. #. 2!e absolute monarc! is ,o%erless in t!e 4ace o4 t!e su,erior 'no%ledge o4 t!e bureaucratic ex,ert, including t!e 4ace o4 t!e ,rime minister, %!o re,resents t!e concentration o4 t!e ,o%er o4 t!e central bureaucracy in a single ,air o4 !ands in a constitutional government and %!o sees everyt!ing and controls %!at monarc! sees 6))38. Only ,rivate economic interest grou,s in business 'no% more t!an bureaucracies, because t!ese grou,s !ave an added incentive 4or exact 'no%ledgeJ economic survival 6))D8. T>>. Excursus on #ollegiate Bodies and >nterest rou,s "ulers see'ing to 4end o44 domination o4 ex,erts %ill sometimes turn to 4ormation o4 0collegiate bodies1 t!at deliberate and resolve continuously 6rat!er t!an occasionally8 and t!at are clearly under rulersB aut!ority ;i.e., ruler doesnBt !ave to listen to t!em=, unli'e bureaucratic ex,erts. 2!e ruler gains needed ex,ert 'no%ledge and yet ,lays t!e ex,erts o44 eac! ot!er so t!ey donBt gain ,o%er to ,rom,t !im into ill.advised decisions 6))-8. 0#ollegiate bodies, as a ty,e, emerge on t!e basis o4 rational s,ecialization o4 4unctions and t!e rule o4 ex,ert 'no%ledge. On t!e ot!er !and, t!ey must be distinguis!ed 4rom1 6(8 advisory bodies selected 4rom among ,rivate and interested circles, %!ic! are 4re?uently 4ound in t!e modern state and %!ose nucleus is not 4ormed o4 o44icials or o4 4ormer o44icials and 6@8 boards o4 directors as in :oint stoc' cor,orations 6))*8. 0#ollegiate administration disa,,ears %!en, 4rom t!e ,oint o4 vie% o4 t!e rulerBs interests, a strictly uni4ied administrative leaders!i, a,,ears to be more im,ortant t!an t!oroug!ness in t!e ,re,aration o4 administrative decisions1 6))A8. S,read 4rom central to varied lo%er aut!orities 6))A8. 0Only %it! t!e bureaucratization o4 t!e state and o4 la% in general can one see a de4inite ,ossibility o4 a s!ar, conce,tual se,aration o4 an Cob:ectiveB legal order 4rom t!e Csub:ectiveB rig!ts o4 t!e individual %!ic! is guarantees, as %ell as t!at o4 t!e 4urt!er distinction bet%een C,ublicB la%, %!ic! regulates t!e relations!i,s o4 t!e ,ublic agencies among eac! ot!er and %it! t!e sub:ects, and C,rivateC la% %!ic! regulates t!e relations!i,s o4 t!e governed individuals among t!emselves1 6))+8. ;$ote: ,resu,,oses distinction bet%een stateKo44ice aut!ority and ,ersonal aut!ority 6))+8.= T>>>. Bureaucracy and Education A0 Bureaucracy #romotes a -rationalist. %ay of life" furtherin! the de*elo#ment of -rational matter2of2factness. and the #ersonality ty#e of the #rofessional e'#ert 344560 B. One o4 t!e im,ortant e44ects o4 <. is on t!e nature o4 education and ,ersonal culture a. the system of rational -e'amination for e'#ertise. is broug!t to t!e 4ore %it! modern bureaucracy 6)))8 b. suc! examination systems con4lict %it! democratic 4ears o4 a ,rivileged CcasteB 6!ere, o4 ex,erts8 6)))8 c. t!is develo,ment is greatly !el,ed by t!e social #resti!e of educational

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de!rees7#atents ac?uired t!roug! suc! s,ecialized exams, ,restige %!ic! can be turned into economic advantage 6(///8 d. demands 4or t!e introduction o4 regulated curricula leading to s,ecial exams !ave muc! more to do %it! limiting su,,ly o4 ?uali4ied candidates t!an %it! belie4 in education 6(///8. Suc! acts lead to formation and #er#etuation of a #ri*ile!ed stratum in business o44ices and ,ublic service 6(///./(8. #. 2!e 0cultivated man1 %as t!e old ideal; in modern bureaucracies, t!e 0s,ecialist1 rules 6(//(8. T>I. #onclusion 02!e bureaucratic structure is every%!ere a late ,roduct o4 !istorical develo,ment. 2!e 4urt!er bac' %e trace our ste,s, t!e more ty,ical is t!e absence o4 bureaucracy and o4 o44icialdom in general. Since bureaucracy !as a CrationalB c!aracter, %it! rules, means.ends calculus, and matter.o4.4actness ,redominating, its rise and ex,ansion !as every%!ere !ad CrevolutionaryB results, in a s,ecial sense still to be discussed, as !ad t!e advance o4 rationalism in general1 6(//@8. R898:ANC8: