Bureaucracy and Public Organization

This lesson complies with the following course outcomes:

CO 1: To provide an understanding and appreciation of the challenges of public administration in a
representative democracy.
CO 5 : To discuss the importance of ethics in public administration

Synopsis
Bureaucracy or the civil service comprises of officers and staff well trained to shoulder
responsibilities to provide services to the people.

They are professional and personnel

selected based on their ability to work as a politically neutral workforce. They serve the
public through government departments and agencies. These departments and agencies
act as a bridge that links the people with government.

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Introduction to Public Organization

I am sure that you have heard the word organization before. Well, textbook definitions
prefer to explain organization as a structure or arrangement of a group of people working
together towards accomplishing a common goal. This group of people is seen to work in a
systematic manner and recognizes itself as an entity called organization.

Thus, public

organization can be loosely defined as any departments, agencies or bodies that are
established to champion the functions of government in its quest to fulfil the public interests.
Since the word public can also refers to any organizations that do not put profit-making as
their goal, we need to make it certain here that we are only referring to government-owned
organizations.

Let me explain further.

You see, government machinery is made up of numerous

organizations at different levels. Some as we have seen in previous lessons are called
departments, while others are known as commissions, statutory bodies, tribunals, courts,
and enterprises. These organizations act as the arms and limbs of government. Public
policies cannot be implemented successfully without public organizations. The staff of public
organizations is professional or those who are appointed based on their capabilities and
qualifications. This appointment system is called the merit system. They have to abide to
numerous procedures and rules that are common to all personnel of the public sector.

Like the private sector administration, public organization also endures challenges to remain
relevant in this ever-changing world. New management techniques and best practices are
sought after everyday to ascertain that organizations in the public sector continue their
popularity among the public. Today, challenges faced by public organization are complicated
and require new methods and ideas. Public officials are required to continuously update
their skills and knowledge in order to help the public with constellation of issues and
predicaments.

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Definition of Bureaucracy
For many decades, public officials also known as bureaucracy are bombarded with claims of
inefficiency, unproductive, ineffectiveness and red-tapes. So, what is red tape? Many,
many years ago in the United Kingdom, documents are good only if they are bound together
during transportation and safekeeping, red string or tapes are used to tie them up. Because
these tapes are visually apparent among the public, it is always used to termed inefficiency
and ineffectiveness of public offices, thus, the term red-tapes.

In Malaysia too,

bureaucracy, originally a French word which carries the meaning, rule by the bureau, is
always seen to be less effective and efficient as compared to its counterpart, the private
sector. Why is this?

There are several reasons. However, you need to look at each reason before you can also
qualify bureaucracy as a week institution. Let me begin by telling you that government
bureaucracy is a huge institution. In Malaysia alone, there are more than a million persons
who make up the entire bureaucracy. The size alone can slow down movement. Take for
example, the big blue whale in the middle of the ocean. It would take him perhaps more
than a kilometre before he can make a complete U-turn. On the contrary, a school of herring
that may be populated by thousands of them can make the same U-turn in a flip of a second!
See, when the organization is big, communication channels are somewhat complicated and
sophisticated. Commands from the top may not reach the bottom-most quickly or if it does,
may be skewed.

Second, big organization like the bureaucracy is also made up of

sophisticated decision making levels. One person alone cannot make a decision before it is
thoroughly discussed at different levels. This of course will take time. Third, government
bureaucracy is exposed to public criticism at all time. A decision that is deemed important
may not be acceptable by the majority of the citizen and this may end up postponing an
important decision.

Forth, government fund is basically public fund.

The government

bureaucracy again, could not spend just like that. Options need to be sought after and
tedious processes in selecting the best options have caused the bureaucracy to be seen
ineffective and inefficient. Organizations in the private sector may or may not share the
challenges facing public bureaucracy. However, they are usually smaller, more focused and
have the ability to make fast decision just like the herrings. That is why they (the private
organizations) are normally seen to be more effective and efficient.

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Types of Bureaucracy
It is never an easy task to classify bureaucracy because they all share more or less the
same characteristics. However, Paul Adler and Bryan Borys (1996) have tried to separate
bureaucracy into two distinct types; the pessimist type and the optimist type.1 These two
terms, pessimist and optimist are of my own since Adler and Borys did not termed them
explicitly.

They just called these two types as the negative view and the positive view

respectively.

Paul S. Adler, Bryan Borys (1996). Two Types of Bureaucracy: Enabling and Coercive, Administrative
Science Quarterly, Vol. 41.

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The Pessimist Type

The pessimist type of bureaucracy perhaps is built on the assumption that bureaucratic form
of organization is naturally non-creative, encourages dissatisfaction and de-motivates
employees.

It is perhaps not difficult to understand this type of bureaucracy given the

common understanding of how inefficient and ineffective government bureaucracy is. It

takes a long period of time to make sound decision and to be responsive to the public
demands. Public officials are seen to be non-committed to the objectives of the organization
and public interest. They are also continuously criticized of spending public funds more than
they should. With all the administrative defects explained here, public bureaucracy of this
type will try its best to hide its flaws from the public. Most of the time, according to both
authors, the bureaucracy will adopt a coercive strategy in performing its duties.

This

approach is further encroached with individual officers who assume autonomy in their daily
routines.

As a result, bureaucracy becomes a very irresponsive and unaccountable

institution of the public service.

This type of bureaucracy is unproductive because it may be source of problem to the

society. Governments project would be delayed and perhaps running into a failure. It only
increases dissatisfaction among the public and as a result, the government would be seen
as incapable to solve public problems, let alone fulfilling their interest. A bureaucracy that is
perceived to be pessimistic would take a long time to win back publics trust.

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The Optimist Type

The optimist type of bureaucracy is the right opposite of the pessimist type. It is seen as
naturally productive, efficient and effective institution.

An optimistic bureaucracy usually

wins the heart of the people. Some of the characteristics of an optimistic bureaucracy are as
follows: First, it is always ready to guide the public about things they need to do. It provides
sound information that is always up-to-date. The public on the other hand, can rely on the
information provided and helps them in their daily activities especially when dealing with the
government.

Second,

optimistic

bureaucracy

provides

guidance

and

clarifies

responsibilities. In the era of information technology, this kind of bureaucracy updates itself
continuously so as to be relevant to the public. Third, it handles publics predicaments in a
more pro-active manner or in other words they pin the problems before it escalates. Forth,
positive bureaucracy does not put the blames of public issues back to the public, rather, it
would look at the entire administrative system and troubleshoot the problems from within.
Fifth, positive bureaucracy treats comments and feedbacks from the public seriously. An
administrative system that does not have a good feedback system is always at the brim of
collapse. A good one however, would be able to entertains each comment or feedback and
response back in a short period of time. Sixth, an optimistic bureaucracy values humanity
highly. It administrative approach is based on the idea that it is serving the public no matter
who they are. Seventh, an optimistic bureaucracy is neutral from political influences. It is
not trying to gain political power nor mileage. It serves the public equally even though
regime changes.

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Max Webers theory of Bureaucracy

To understand Max Webers (1864-1920) bureaucratic model, let me first explain the
meaning of model. A model can be understood as a representation of the real thing. You
see, when an architect want to give his/her client the impression of the building that will be
constructed, he/she would build a smaller version of the building in a three dimensional
figure. The customer, especially those who are not trained in the civil or building technology
would be able to appreciate the building even before the start of the construction. This
smaller version of the building is called a model.

Likewise in studies within the social

science, scholars like to use model to explain a given phenomenon or a theory. Max Weber
bureaucratic model tries to explain the whole nature of bureaucracy to students and the
general public. Max Weber termed this organizational form of bureaucracy as a "rationallegal system".

What is rational-legal system?

When we say that bureaucracy is rational, we mean that the bureaucracy is rationally
designed to achieve functional performance at all levels, which include; department level,
branch level, local level, state level and the federal level. It also means that every part of the
bureaucracy should contribute to the whole institution. The bureaucracy is said to be legal
because it is a recognized institution by the law. As I have discussed above, bureaucracy is
part of the governments machinery that helps the government to operate daily. By being
legal, bureaucratic organizations have the authority to pursue their functions without any fear
or favour. Bureaucratic authority is exercised through the numerous rules and procedural
systems created for the sole purpose of meeting the publics interests. Authority in this
structure is based on purposeful reasoning and formally defined, accepted structures of rules
and procedures. The power of those in authority depends on their acceptance of due legal
process and qualification

Webers bureaucratic model also means that the public will conform to bureaucratic rules
and procedures because the rules are defined and administered fairly. The model also
recognizes citizens rights and privileges as stated in the constitution of the state. All rules
and procedures should not be in confrontation of the constitution and any laws.
bureaucratic institution is also seen as protector of these rights and privileges

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Thus,


As you already know, there are many people who feel that bureaucracy is indistinguishable
with inefficiency, an emphasis on red-tape and excessive writing and recording.
Interestingly, Weber did not look at bureaucracy in the same way. To him, bureaucracy as
an organisation is technically the most efficient form of structure known to men.

He even

wrote, "Precision, speed, unambiguity, knowledge of files, continuity, unit, strict

subordination, reduction of friction and of material and personal costs - these are raised to
the optimum point in the strictly bureaucratic administered organization.2 What does this
statement means?

1. Precision bureaucracy works to solve problems or provide solutions in a focused

manner, thus, it collects information, scrutinize them through analysis and finally
provide opinion that is precisely needed by the customer (or the public)
2. Speed Weber sees bureaucracy as an institution staffed by individuals chosen by
means of merit, thus, having the capability and ability to perform their duties
efficiently. Problems are quickly responded because any delay would hamper the
fulfilment of public interest.
3. Unambiguous - according to Weber, bureaucracy is again, a very focused institution
dealing with public administration. The different departments and units within the
departments work in well defined hierarchy. Everyone knows what he/she should be
doing in contributing to help publics interest.
4. Knowledge Weber perceives that bureaucracy having the appropriate knowledge to
function well in any government. Knowledge could be the cognitive ability among the
office bearers. It could also mean the information needed to solve problems or to
provide solutions to public predicaments.
5. Knowledge of files Weber recognizes that bureaucratic organizations such as
governmental departments keep a lot of documents in files. He believes that these
organizations have the expertise in handling files logically and rationally that retrieval
of information from documents is done effectively.

Max Weber (1946/1958, p. 214) Weber, Max. 1946/1958. From Max Weber. Translated and edited
by H. H. Gerth and C. Wright Mills. New York: Galaxy.

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6. Continuity since the posts held by public officers are temporary, at least before
their retirement, Weber stresses on the needs for continuity of service. What this
means is that when a public officer leaves his post either voluntarily or mandatory,
his job will be taken by someone who has the competency to continue the tasks.
This way, the interests of the public will not be stopped.
7. Unit - one of Webers most important contribution in the mechanics of bureaucracy is
the notion of hierarchical distribution of authority.

He understands that a huge

organization cannot be as close to solving the problem as possible. Division of the

organization into smaller units is necessary for officers to be more focused in their
assignment of duties and authorities.
8. Strict subornation Weber is very serious in the allocation of authority within an
organization.

His call for an organizational chart distribution of authority has

bureaucracy for decades. Everyone in the organization should know where he or

she is positioned, who to report to and the span of control he or she has.
9. Reduction of friction one of the goals of a working bureaucracy is to establish
group-work and reduce individuality.

When people work together to achieve a

common goal, the work becomes more exciting, easier to accomplish and creates a
sense of togetherness.
10. Reduction of material and personal costs Weber sees bureaucracy as an institution
that works towards effectiveness and efficiency. If effectiveness can be measured by
comparing how much of the objectives are met, efficiency would requires us to
measure how much the organization has successfully saved its costs.

To be

efficient, an organization has to spend its resources wisely and no wastage.

Weber wrote, "From a purely technical point of view, a bureaucracy is capable of attaining
the highest degree of efficiency, and is in this sense formally the most rational known means
of exercising authority over human beings. It is superior to any other form in precision, in
stability, in the stringency of its discipline, and in its reliability. It thus makes possible a
particularly high degree of calculability of results for the heads of the organization and for
those acting in relation to it. It is finally superior both in intensive efficiency and in the scope
of its operations and is formally capable of application to all kinds of administrative tasks3

Max Weber (1968/1921, p. 223) Weber, Max. 1968/1921. Economy and Society. Translated and
edited by Guenther Roth and Claus Wittich. New York: Bedminster Press

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Although Weber realizes that a pure form of bureaucracy could never exist, he developed
guidelines/elements for an ideal bureaucracy:

A fixed division of labour

A clearly defined hierarchy of positions, each with its own sphere of competence

Job applicants selected on the basis of technical qualifications

Employees paid by fixed salaries

The position is primary occupation of office holder

Promotion granted according to seniority and/or achievement

Separation of day-to-day workers from higher authorities

Separation of work from home and family life

Written rules governing the performance of duties/behavior at work

Weberian bureaucracy appreciates the importance of a leader for an organization. According

to Weber, a leader possesses special qualities that attract the support of followers who value
the benefits that association with the leader brings. The leader organises, directs and
distributes rewards. Organisational success depends on the ability and expertise of the
leader and his/her inspired followers. Whenever a leaders capacities decline, followers
expectations will be disappointed and can cause frictions, factionalism, resentment and other
problems.

Weber values charismatic leader highly. Charismatic leadership can be

understood based on the leader's ability to communicate and behave in ways that reach
followers on a basic, emotional way, to inspire and motivate. Charismatic influence may live
on if the leader's values and doctrines are elevated to a higher spiritual plain and integrated
by followers into a way of life.

Thus, bureaucratic organization with charismatic leadership

according to Weber, would be successful than any other leadership styles.

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Bureaucracy too can have problems

Be it as it may, bureaucracy is human creation. And just like any human creation, it is not
without any problems. Most of time, the problems associated with bureaucracy have human
as the main source. Organization, big or small cannot operate in a vacuum. Officers and
staff work together or do not work together to arrive at the organizational goals. Public
officers are not inoculated from wrong-doing. They make mistakes; sometimes unrealized
mistakes while others are purposely done. Let us see some of the problems encircling the
public organizations and officers.

Officials become overbearing it means that they can become arrogant with their
position and putting themselves higher than their customer the public.

They may apply administrative systems as ends in themselves - after all their role,
position and continuity depend on them.

Individuals may protect their position and build up the power of the office.

Public officials are also exposed to bribery and corruption

Public officials too are subjected to office politics that can deviate them from their
main objectives and roles

Without proper understanding of the governmental policies, officers could wrongly

advise customers about their needs

Some procedures and rules that are not people-friendly would just hamper citizens
trust towards bureaucracy or even the government

Neutral bureaucracy, its advantages and disadvantages

In the Weberian tradition, bureaucracy is a neural institution of the government.

Its

establishment is not particularly to strengthened the regime of the day, rather, it is to ensure
that there is a harmonious relationship between service providers (the government) and
service recipients (the people). As we have discussed in the earlier part of his lesson,
bureaucracy has its own cardinal objective, i.e. to serve the public interests. Bureaucracy by
design does not make laws or policies. This is the duty of the political institutions such as
the Cabinet and the Legislative Council. However, the bureaucrats are sometimes called to
help these institutions function more effectively.

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Some of the advantages of a neutral bureaucracy are:
1. Policies can be implemented without fear or favour.
2. Public officials can focus their duties without intervention from the political institutions
or players
3. Officers can provide factual information to the policy makers for equal and fair
policies
4. No discrimination based on political alliances
5. Government can be confident that its policies will be implemented in the best way
possible by meritorious public officers
6. Since there is no or minimal discrimination, the levels of corruption within the public
service can be reduced

A totally pure neutrality of the bureaucracy can also have disadvantages:

1. Policy making and policy implementation can be lopsided in the sense that the
understanding of a given issue or problem may not be the same between the
government and the bureaucracy
2. In an environment of economic competition, neutrality of bureaucracy may cause a
segment of the population with wealth and properties to flourish and those without,
continue to be deprived. This is because bureaucracy cannot discriminate people
based on their wealth or other things
3. Government policies will not be opened for criticism because the bureaucracy is seen
to be neural from the government aspiration. Being an institution that is staffed by
professionals, bureaucracy will also be seen to be pathetic or week if it does not
comment on policies especially those that are unfriendly to the publics interests.

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Weberian Bureaucracy in Malaysia

Although Malaysia inherited the Western form of bureaucracy from the British even before
we gained independence in 1957, the administrative reform movement which started in 1967
really has brought in the Weberian tradition of bureaucracy. The colonial administration was
not very keen in developing the administrative machinery for the nation. Its main objectives
were to maintain the colonial administration and to exploit the countrys economic wealth for
the sake of the British Empire. However, the maintenance administration did contribute to
some levels of administrative capabilities and capacities. Before independence, the British
conducted a scheme to appoint more indigenous people into the civil service. This scheme
is called the Malayanization Scheme. However, the British screened the appointment based
on their own interests. Malay officials selected from especially those who graduated from
English schools like the Malay College of Kuala Kangsar were inducted as junior officers.
Elements of bureaucracy propagated by Weber if available were subjected to British officials
only.

When we gained independence, Tun Abdul Razak initiated an administrative reform that
turned the Malaysian bureaucracy towards more Weberian-like bureaucracy. You can find
an elaborate discussion about this in Lesson 4 Public Administration in Malaysia.

Lesson 2 Assignments
Please check with your Seminar Facilitator for your assignments.

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