Bureaucracy or the Civil Service constitutes the permanent and professional part of the executive organ of government. It is usually described as the non-political or politically neutral, permanent, and professionally trained civil servant.
It runs the administration of the state according to the policies and laws of the government political executive. Upon the qualities and efficiency of bureaucracy depends the quality and efficiency of the state administration. It, however, works under the leadership and control of the Political Executive.
OR
It is a form of administrative system used by both public and private institutions. Simply put, it is a government body that is composed of non-politicians but who are appointed to help in policy-making and be in charge of administrative tasks in government agencies.
It is a form of administrative system used by both public and private institutions. Simply put, it is a government body that is composed of non-politicians but who are appointed to help in policy-making and be in charge of administrative tasks in government agencies.
In government, bureaucrats implement policies, write rules and regulations and administer them on people, among others. In organizations, bureaucracy structure is divided into different levels, from frontline employees up to the upper management.
Bureaucracy: Meaning and Definition:
The terms bureaucracy, civil service, public servants, public service, civil servants, government service, government servants, officials of government, officials, permanent executive and non-political executive are used to describe all such persons who carry out the day to day administration of the state. The terms Bureaucracy’ and ‘Civil Service’ are popularly used as synonyms.
Narrow and Broad uses of the term Bureaucracy:
In a narrow sense the term Bureaucracy is used to denote those important and higher level public servants who occupy top level positions in the state administration. In the broad sense, it refers to all the permanent employees of the government right from the peons and clerks to the top level officials. Presently, we use the term in its broader dimension.
Definitions:
The word “Bureaucracy” stems from the combination of a French word “Bureau” and a Greek word “Kratos”. In its very basic form, the definition of bureaucracy states that it is a collection or group of officials who engage in administrative and/or policy making duties. The presence of bureaucracy and bureaucrats is largely imperative in modern society where smooth running of an organization, a government or any department for that matter depends on the efficiency of this system.
(1) “Bureaucracy means the civil servants, the administrative functionaries who are professionally trained for the public service and who enjoy permanency of tenure, promotion within service-partly by seniority and partly by merit.” -Garner
(2) “In its broad larger sense the term Civil Service is used to describe any personnel system where the employees are classified in a system of administration composed of a hierarchy, sections, divisions, bureaus, departments and the like.” -Willoughby
(3) “Civil Service/Bureaucracy is a professional body of officials permanent, paid and skilled.” –Finer
Types Of Bureaucracy :
A Guardian Bureaucracy: Dedicated to general welfare. Acts as a champion of justice. Custodian of community’s welfare
B Caste Bureaucracy: ---Higher administrative positions given to individuals from a specific social background. During Mauryan period, senior government positions were given mostly to Brahmins.
C Patronage Bureaucracy: Public appointments are made on the basis of personal favour or as political rewards.
D Merit Bureaucracy: Appointed on the basis of merit through competitive examination. Most countries practice this type.
Advantages
1. Central authority in bureaucracy makes it effective in organizing.
Advocates for bureaucracy have positive views on having hierarchy in an organization. They say that since there is a chain of command, there will be specific roles and tasks for people involved in the departments. This way, management will be able to monitor the performance of the people in lower ranks. Also, with strict regulations and policies that need to be observed, there is a big possibility that duties will be carried out in a systematic and timely manner. Following these set of rules before decision making ensures choices and steps are ideal and well selected.
Advocates for bureaucracy have positive views on having hierarchy in an organization. They say that since there is a chain of command, there will be specific roles and tasks for people involved in the departments. This way, management will be able to monitor the performance of the people in lower ranks. Also, with strict regulations and policies that need to be observed, there is a big possibility that duties will be carried out in a systematic and timely manner. Following these set of rules before decision making ensures choices and steps are ideal and well selected.
2. It supports the hiring of specialized officials.
Supporters of bureaucracy prefer the idea of designating appointed officials who have the educational background and expertise on the agency they will assigned to. These bureaucrats also have the training and skills particular to their designation. This ensures these non-elective members know what they are doing and will be able to maximize their knowledge and apply their skills. As a result, tasks are effectively carried out. Another point proponents express in connection with officials having specialization is the possibility that there will always be solutions to issues since problems which cannot be handled by an officer will be escalated to an individual who is also competent.
Supporters of bureaucracy prefer the idea of designating appointed officials who have the educational background and expertise on the agency they will assigned to. These bureaucrats also have the training and skills particular to their designation. This ensures these non-elective members know what they are doing and will be able to maximize their knowledge and apply their skills. As a result, tasks are effectively carried out. Another point proponents express in connection with officials having specialization is the possibility that there will always be solutions to issues since problems which cannot be handled by an officer will be escalated to an individual who is also competent.
3. It follows Standard Operating Procedure.
Proponents of bureaucracy look at these formalized rules to bring about efficiency and predictability in results. In this set-up, officials are to follow instructions and procedures step by step in handling tasks and situations. This way, outcomes will be within the specified range.
Proponents of bureaucracy look at these formalized rules to bring about efficiency and predictability in results. In this set-up, officials are to follow instructions and procedures step by step in handling tasks and situations. This way, outcomes will be within the specified range.
4. It sets no room for favoritism.
People in favor of bureaucracy claim that with the regulations and procedure to be followed in order to achieve results, the risks of favoring some individuals over others will be minimal if not none at all. A scenario mentioned is one of a student applying for a loan. There is a systematic process involved and certain requirements to be met to get an approval. With skipping a step or one of these requirements lacking, the process will not be able to move forward. With bureaucracy, all will be treated fairly and will undergo the same procedure regardless of affiliation to any of the officials in the particular agency.
People in favor of bureaucracy claim that with the regulations and procedure to be followed in order to achieve results, the risks of favoring some individuals over others will be minimal if not none at all. A scenario mentioned is one of a student applying for a loan. There is a systematic process involved and certain requirements to be met to get an approval. With skipping a step or one of these requirements lacking, the process will not be able to move forward. With bureaucracy, all will be treated fairly and will undergo the same procedure regardless of affiliation to any of the officials in the particular agency.
5. It allows for merit-based hiring and promotion.
For a non-elective member of a government agency, he or she should be qualified and pass the qualifying exams to be employed or appointed as well as climb the hierarchy. This means that whoever is appointed has the knowledge, expertise and skills to handle the job. No one will be considered simply because he or she is a relative or a friend of a high-ranking official in the agency.
For a non-elective member of a government agency, he or she should be qualified and pass the qualifying exams to be employed or appointed as well as climb the hierarchy. This means that whoever is appointed has the knowledge, expertise and skills to handle the job. No one will be considered simply because he or she is a relative or a friend of a high-ranking official in the agency.
6. It plays an important role in policy making.
Although civil servants do not make policies, they gather the data forwarded to the political executive. They are also responsible for formulating several alternative policies and determine the pros and cons of each. In turn, the political executive will choose one policy which will then be used as an alternative.
Although civil servants do not make policies, they gather the data forwarded to the political executive. They are also responsible for formulating several alternative policies and determine the pros and cons of each. In turn, the political executive will choose one policy which will then be used as an alternative.
1. The rules and procedures are decided for every work it leads to, consistency in employee behaviour. Since employees are bound to follow the rules etc., the management process becomes easy.
2. The duties and responsibilities of each job are clearly defined there is no question of overlapping or conflicting job duties.
3. The selection process and promotion procedures are based on merit and expertise. It assists in putting right persons on right jobs. There is optimum utilisation of human resources.
4. The division of labour assists workers in becoming experts in their jobs. The performance of employees improves considerably.
5. The enterprise does not suffer when some persons leave it. If one person leaves then some other occupies that place and the work does not suffer.
Disadvantages
1. It can hamper achievement of results in time.
Critics are arguing that with the certain steps needed to carry out tasks and the need to follow a chain of command to proceed, lots of time can be lost especially if decisions and results are needed immediately. If a government is run by bureaucrats and there is a chain-of-command, a certain decision like military defense can result to unfavorable outcomes since an action cannot be carried out without different personalities or officials in the hierarchy have approved such. This makes the process slow, according to proponents.
Critics are arguing that with the certain steps needed to carry out tasks and the need to follow a chain of command to proceed, lots of time can be lost especially if decisions and results are needed immediately. If a government is run by bureaucrats and there is a chain-of-command, a certain decision like military defense can result to unfavorable outcomes since an action cannot be carried out without different personalities or officials in the hierarchy have approved such. This makes the process slow, according to proponents.
2. It breeds boredom and can affect productivity.
Opponents are criticizing the repetitive tasks in specialized jobs. They claimed that in time, it can bore members of the organization or agency. They added that even in a business which uses bureaucracy, employees might not be able to withstand doing the same work daily. The routine might just be too much from them and may result to absenteeism and less productivity.
Opponents are criticizing the repetitive tasks in specialized jobs. They claimed that in time, it can bore members of the organization or agency. They added that even in a business which uses bureaucracy, employees might not be able to withstand doing the same work daily. The routine might just be too much from them and may result to absenteeism and less productivity.
3. It results to passive and rule-based human beings.
Another disadvantage being pointed out by some people who do not like a bureaucratic structure say that the strict rules and regulations imposed in bureaucracies seem to remove the freedom of an individual to act and discern on his or her own because of certain restrictions. This, according to some, is not beneficial.
Another disadvantage being pointed out by some people who do not like a bureaucratic structure say that the strict rules and regulations imposed in bureaucracies seem to remove the freedom of an individual to act and discern on his or her own because of certain restrictions. This, according to some, is not beneficial.
4. It can result to inefficiency.
In bureaucracy, there is less competition since hiring and promotion is based on merits and qualifications. Moreover, once a civil servant is appointed, he or she has a fixed salary, works on specialized tasks and cannot function outside the sphere of the department he or she belongs to. Some people see this as unproductive and a disadvantage because it can demoralize civil servants who belong in a bureaucracy.
In bureaucracy, there is less competition since hiring and promotion is based on merits and qualifications. Moreover, once a civil servant is appointed, he or she has a fixed salary, works on specialized tasks and cannot function outside the sphere of the department he or she belongs to. Some people see this as unproductive and a disadvantage because it can demoralize civil servants who belong in a bureaucracy.
1. Rigidity: Rules and regulations in a bureaucracy are often rigid and inflexible. Rigid compliance with rules and regulations discourages initiative and creativity. It may also provide the cover to avoid responsibility for failures.
2. Goal Displacement: Rules framed to achieve organizational objectives at each level become an end to themselves. When individuals at lower levels pursue personal objectives, the overall objectives of the organization may be neglected.
3. Impersonality: A bureaucratic organization stresses a mechanical way of doing things. Organizational rules and regulations are given priority over an individual’s needs and emotions.
4. Compartmentalization of Activities: Jobs are divided into categories, which restrict people from performing tasks that they are capable of performing. It also encourages preservation of jobs even when they become redundant.
5. Paperwork: Bureaucracy involves excessive paperwork as every decision must be put into writing. All documents have to be maintained in their draft and original forms. This leads to great wastage of time, stationery and space.
6. Empire Building: People in bureaucracy tend to use their positions and resources to perpetuate self interests. Every superior tries to increase the number of his subordinates as if this number is considered a symbol of power and prestige.
7. Red Tape: Bureaucratic procedures involve inordinate delays and frustration in the performance of tasks.
Disadvantages of Bureaucracy:
1. This system suffers from too much of red tape and paper work.
2. The employees do not develop belongingness to the organisation.
3. The excessive reliance on rules and regulations and adherence to these policies inhibit initiative and growth of the employees. They are treated like machines and not like individuals. There is neglect of human factor.
4. The employees become so used to the system, they resist to any change and introduction of new techniques of operations.
5. In dealing with people, total impersonal approach cannot be adopted because people have feelings, emotions and sentiments which affect decision. Thus, people cannot work totally according to rules and prescriptions.
Role of Bureaucracy: Functions:
Bureaucracy or Civil Service plays a key role in running the Public Administration e by performing the following functions:
1. Implementation of Governmental Policies and Laws:
It is the responsibility of the bureaucracy to carry out and implement the policies of the government. Good policies and laws can really serve their objectives only when these are efficiently implemented by the civil servants.
2. Role in Policy-Formulation:
Policy-making is the function of the political executive. However, the Bureaucracy plays an active role in this exercise. Civil Servants supply the data needed by the political executive for formulating the policies. In fact, Civil servants formulate several alternative policies and describe the merits and demerits of each. The Political Executive then selects and adopts one such policy alternative as the governmental policy.
3. Running of Administration:
To run the day to day administration in accordance with the policies, laws, rules, regulations and decisions of the government is also the key responsibility of the Bureaucracy. The political executive simply exercises guiding, controlling and supervising functions.
4. Advisory Function:
One of the important functions of the Bureaucracy is to advise the political executive. The ministers receive all the information and advice regarding the functioning of their respective departments from the civil servants. As amateurs, the ministers have little knowledge about the functions of their departments. They, therefore, depend upon the advice of bureaucracy. As qualified, experienced and expert civil servants working in all government departments, they provide expert and professional advice and information to the ministers.
5. Role in Legislative Work:
The civil servants play an important but indirect role in law-making. They draft the bills which the ministers submit to the legislature for law-making. The ministers provide all the information asked for by the legislature by taking the help of the civil servants.
6. Semi-judicial Work:
The emergence of the system of administrative justice, under which several types of the cases and disputes are decided by the executive, has further been a source of increased semi-judicial work of the bureaucracy. The disputes involving the grant of permits, licences, tax concessions, quotas etc. are now settled by the civil servants.
7. Collection of Taxes and Disbursement of Financial Benefits:
The civil servants play a vitally important role in financial administration. They advise the political executive in respect of all financial planning, tax-structure, tax-administration and the like. They collect taxes and settle disputes involving recovery of taxes. They play a vital role in preparing the budget and taxation proposals. They carry out the function of granting of legally sanctioned financial benefits, tax reliefs, subsidies and other concessions to the people.
8. Record-Keeping:
The Civil Service has the sole responsibility of keeping systematically all government records. They collect, classify and analyse all data pertaining to all activities of the government. They collect and maintain vital socioeconomic statistics which are used for the formulation of Public policies and plans.
9. Role in Public Relations:
The era of modern welfare state and democratic politics has made it essential for the government to keep close relations with the people of the state. The need for maintaining active and full public relations is a vital necessity of every state. The civil servants play an active role in this sphere.
They are the main agents who establish direct contacts with the people. They serve as a two way link. On the one hand, they communicate all government decisions to the people, and on the other hand, they communicate to the government the needs, interests and views of the people. Thus, Bureaucracy plays a vigorously active and highly important role in the working of the government.
Features of Bureaucracy
1. Permanent Character:
The civil servants hold permanent jobs in government departments. They mostly join their services during their youths and continue to work as government servants till the age of retirement which is usually 58 to 60 years.
The civil servants hold permanent jobs in government departments. They mostly join their services during their youths and continue to work as government servants till the age of retirement which is usually 58 to 60 years.
2. Hierarchical Organisation:
Bureaucracy is hierarchically organised in several levels. Each official is placed at a particular level of hierarchy and he enjoys the privileges and powers which are available to his co-level officials. He is under his immediate higher level officials and is above his immediately lower level officials. The principle of rule of the higher over the lower governs the inter-relations between various levels of bureaucracy.
Bureaucracy is hierarchically organised in several levels. Each official is placed at a particular level of hierarchy and he enjoys the privileges and powers which are available to his co-level officials. He is under his immediate higher level officials and is above his immediately lower level officials. The principle of rule of the higher over the lower governs the inter-relations between various levels of bureaucracy.
3. Non-partisan Character:
The members of the Bureaucracy are not directly involved in politics. They cannot join political parties and participate in political movements. They are not affected by the political changes which keep on coming in the political executive. Whichever party may come to power and make the government, the civil servants remain politically neutral and carry out their assigned departmental roles impartially and faithfully.
The members of the Bureaucracy are not directly involved in politics. They cannot join political parties and participate in political movements. They are not affected by the political changes which keep on coming in the political executive. Whichever party may come to power and make the government, the civil servants remain politically neutral and carry out their assigned departmental roles impartially and faithfully.
4. Professional, Trained and Expert Class:
The Bureaucracy constitutes the educated and professionally trained class of persons which helps the political executive in carrying out its functions. The members of civil service are recruited through competitive examinations for appearing in which they have to possess some minimum educational qualifications. Before their appointments, they get special trainings. During the course of their service they attend orientation and refresher courses. They have the knowledge, training and expertise necessary for carrying out their administrative work.
The Bureaucracy constitutes the educated and professionally trained class of persons which helps the political executive in carrying out its functions. The members of civil service are recruited through competitive examinations for appearing in which they have to possess some minimum educational qualifications. Before their appointments, they get special trainings. During the course of their service they attend orientation and refresher courses. They have the knowledge, training and expertise necessary for carrying out their administrative work.
5. Fixed Salaries:
Each member of the Bureaucracy receives a fixed salary. Right at the time of appointment he is allotted a scale of pay, which depends upon the nature and level of his job-responsibility. All the civil servants belonging to a particular class of administrative hierarchy are placed in one scale of pay. Each job also entitles them to some allowances.
Each member of the Bureaucracy receives a fixed salary. Right at the time of appointment he is allotted a scale of pay, which depends upon the nature and level of his job-responsibility. All the civil servants belonging to a particular class of administrative hierarchy are placed in one scale of pay. Each job also entitles them to some allowances.
6. Bound by Rules and Regulations:
The Bureaucracy always works in accordance with ‘rules and regulations’. ‘Strict obedience to rules’, ‘Through Proper Channel’, ‘Decision-making after satisfying the rules’, are the principles which always guide, direct and regulate the working of bureaucracy. Each official works only within the sphere prescribed for him by the rules of his department.
The Bureaucracy always works in accordance with ‘rules and regulations’. ‘Strict obedience to rules’, ‘Through Proper Channel’, ‘Decision-making after satisfying the rules’, are the principles which always guide, direct and regulate the working of bureaucracy. Each official works only within the sphere prescribed for him by the rules of his department.
7. Class Consciousness:
The Civil Servants are highly class conscious. They jealously work to protect and promote the interests of their class of civil servants. They are called the white-collar class because of their faith in their ‘superior status’ as government officials.
The Civil Servants are highly class conscious. They jealously work to protect and promote the interests of their class of civil servants. They are called the white-collar class because of their faith in their ‘superior status’ as government officials.
8. Public Service Spirit as the Ideal:
Modern Bureaucracy identifies itself with public service spirit. It always tries to project itself as the civil servants devoted to the promotion of public welfare through the satisfaction of public needs. They are expected to behave as ‘officers’ responsible for public welfare, with service as their motto.
Modern Bureaucracy identifies itself with public service spirit. It always tries to project itself as the civil servants devoted to the promotion of public welfare through the satisfaction of public needs. They are expected to behave as ‘officers’ responsible for public welfare, with service as their motto.
9. Bound by a Code of Conduct:
The civil servants have to follow a code of conduct. They have to act in a disciplined way. Their rights, duties and privileges stand clearly defined. The procedure of work is definite and settled. They can be punished for misbehavior, incompetence or negligence or for a violation of their conduct rules. In short, Bureaucracy is characterised by political neutrality, professional competence, permanent/ stable tenure, fixed salaries and strict obedience to rules.
The civil servants have to follow a code of conduct. They have to act in a disciplined way. Their rights, duties and privileges stand clearly defined. The procedure of work is definite and settled. They can be punished for misbehavior, incompetence or negligence or for a violation of their conduct rules. In short, Bureaucracy is characterised by political neutrality, professional competence, permanent/ stable tenure, fixed salaries and strict obedience to rules.
10. Official Record:
Bureaucratic organisation is characterised by maintenance of proper official records. The decisions and activities of the organisation are formally recorded and preserved for future reference. This is made possible by extensive use of filling system in the organisation. An official record is almost regarded as encyclopedia of various activities performed by the people in the organisation.
Bureaucratic organisation is characterised by maintenance of proper official records. The decisions and activities of the organisation are formally recorded and preserved for future reference. This is made possible by extensive use of filling system in the organisation. An official record is almost regarded as encyclopedia of various activities performed by the people in the organisation.
11. Impersonal Relationships:
A notable feature of bureaucracy is that relationships among individuals are governed through the system of official authority and rules. Official positions are free from personal involvement, emotions and sentiments. Thus, decisions are governed by rational factors rather than personal factors. This impersonality concept is used in dealing with organisational relations as well as relations between the organisation and outsiders.
A notable feature of bureaucracy is that relationships among individuals are governed through the system of official authority and rules. Official positions are free from personal involvement, emotions and sentiments. Thus, decisions are governed by rational factors rather than personal factors. This impersonality concept is used in dealing with organisational relations as well as relations between the organisation and outsiders.
No comments:
Post a Comment