bureaucracy, the administrative structure of any large organization, public or private. Ideally bureaucracy is characterized by hierarchical authority relations, defined spheres of competence subject to impersonal rules, recruitment by competence, and fixed salaries. Its goal is to be rational, efficient, and professional. Max Weber, the most important student of bureaucracy, described it as technically superior to all other forms of organization and hence indispensable to large, complex enterprises. However, because of the shortcomings that have in practice afflicted large administrative structures, the terms bureaucracy and bureaucrat in popular usage usually carry a suggestion of disapproval and imply incompetence, a narrow outlook, duplication of effort, and application of a rigid rule without due consideration of specific cases. Bureaucracy existed in imperial Rome and China and in the national monarchies, but in modern states complex industrial and social legislation has called forth a vast growth of administrative functions of government. The power of permanent and nonelective officials to apply and even initiate measures of control over national administration and economy has made the bureaucracy central to the life of the state; critics object that it is largely impervious to control by the people or their elected representatives. The institution of the ombudsman has been one means adopted in an attempt to remedy this situation. Others has been collective decision making and organizational structures that emphasize minimize hierarchies and decentralize the power to make decisions. Administrative bureaucracies in private organizations and corporations have also grown rapidly, as has criticism of unresponsive bureaucracies in education, health care, insurance, labor unions, and other areas. See also civil service; industrial management.

Professional corps of officials organized in a pyramidal hierarchy and functioning under impersonal, uniform rules and procedures. Its characteristics were first formulated systematically by Max Weber, who saw in the bureaucratic organization a highly developed division of labour, authority based on administrative rules rather than personal allegiance or social custom, and a “rational” and impersonal institution whose members function more as “offices” than as individuals. For Weber, bureaucracy was a form of legalistic “domination” inevitable under capitalism. Later writers saw in bureaucracy a tendency to concentrate power at the top and become dictatorial, as occurred in the Soviet Union. Robert K. Merton emphasized its red tape and inefficiency due to blind conformity to procedures. More recent theories have stressed the role of managerial cliques, occupational interest groups, or individual power-seekers in creating politicized organizations characterized by internal conflict.

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