Professional Documents
Culture Documents
By Eileen Bevis
CITATION:
Weber, Max. Economy and Society. Edited Guenther Roth and Claus Wittich. New York:
Bedminister Press, 1968, vol. 1, Conceptual Exposition, pgs. 956-1005, Bureaucracy.
ABSTRACT:
The chapter on Bureaucracy is in vol. 3 of E&S, along with six other chapters on various types
of domination, legitimacy, and authority. What you should know, context-wise: bureaucracy is
the typical expression of rationally regulated association within a structure of domination.1 This
chapter is a schematic outline of the structural characteristics, origins (= necessary conditions),
and effects of bureaucracy. Fully-developed bureaucracies are impersonal, objective,
indestructible, indispensable, born out of inherent technical superiority, cause social leveling, and
boost rationalism [among MANY other things].
SUMMARY:
I. Characteristics of a Modern Bureaucracy, a.k.a. Modern Officialdom (956-958)
A. Jurisdictional areas are generally ordered by rules = laws = administrative
regulations (956).
1. Regular activities required by the bureaucracy are assigned as official duties.
2. The authority to command the discharge of these duties is distributed in a
stable way and is delimited by rules concerning acceptable coercive means.
3. The regular and continuous fulfillment of these duties is provided for in a
methodical way.
These three elements constitute:
- a bureaucratic agency in the sphere of the state
- a bureaucratic enterprise in the sphere of the private economy
Bureaucracy is fully developed only in modern state or modern economy =
capitalism.
B. There is a clearly established office hierarchy system of super- and sub-ordination in
which there is a supervision of lower offices by higher ones and regulated channels of
appeal (957).
The fully developed bureaucracy is monocratically organized [ruled by a single
person, such as a Prime Minister].
Ideally, the higher authority never takes over the lower authoritys business
[bureaucracy would then shrink]; instead, lower authoritys offices will always be
filled in the case of a vacancy [bureaucracy thus always and only grows larger].
C. Management is based on written documents and a staff of subaltern officials and
scribes. The officials plus their files and materials make up a bureau.
In principle, official bureau activity is kept separate from private home life [for
relevance of this point, think $$] (957).
D. Office management usually presupposes thorough, specialized training (958).
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Weber - 2
E. Official activity demands full working capacity of the official in a fully developed
bureaucracy (958).
F. Management of the office follows general rules, which are pretty stable, exhaustive,
and learnable (958). Knowledge of these rules constitutes special technical
expertise.
II. The position of the official within and outside of the bureaucracy (958-963)
A. Office Holding as a Vocation
a. True because there is a required, prescribed course of training and exams
which takes up full working capacity for a long time, has special exams
b. Also true because position of the official is seen as a dutyofficial doesnt
own position, but rather agrees to fulfill impersonal and functional
purposes of office in exchange for secure guarantee of existence.
B. The Social Position of the Official
a. The modern official always strives for and usually attains a distinctly elevated
social esteem vis-a-vis the governed. Officials have highest social position
where there is demand for expert administration and there is a strong hold of
status conventions/social differentiation (e.g. not in U.S.) (959-60).
b. Elected officials hold autonomous positions vis--vis their supervisors.
Appointed officials function more accurately than elected officials because
theyre been selected for functional ability. However, use of unqualified
elected or appointed-by-elected officials usually backfires on party [except in
Chicago??]. Fully democratic elections of administrative chiefs and their
subordinate officials usually endangers supervision of officials and precise
functioning of the bureaucracy (961).
c. The measure of independence legally guaranteed by tenure for life is not
always a source of increased social status (e.g. socially-inept, independent
judges vs. socially-ept and/because socially dependent because removable
military officers in Germany) (962).
d. Bureaucratic officials earn a salary, not a wage, and this salary is based on
rank/status and maybe length of service, not on hours worked. They are also
guaranteed a pension (963).
e. The official is set for a career up the hierarchy of the bureaucracy (up to
higher officers, more important status, and higher salary) (963).
III. Monetary and Financial Presuppositions of Bureaucracy (963-969)
A. The development of the money economy is a presupposition of a modern
bureaucracy [difficult to pay officials with in kind payments after a certain point],
though historically there were large, well-developed bureaucracies that used in kind
payments (Egypts New Kingdom, later Roman Principate, Roman Catholic Church,
Chin post-Shi Hwangti until present) (963-64).
B. Various asides on how to turn in kind payments into cash via ones official position,
why direct purchase of offices occurs (need not just cash but capital). One definition
of word that Weber uses frequently: prebends and prebendal organization refer to all
cases of life-long assignment to officials of rent payments deriving from material
goods or land/rent, in compensation fro the fulfillment of real or fictitious duties of
office (966-67).
Weber - 3
Weber - 4
Weber - 5
B. But democracy also inevitably comes into conflict with bureaucratic tendencies that
were produced by democracys fights against noblesdemocracy strives to shorten
office terms and to have more candidate choices than only those with special expert
qualifications, whereas bureaucracy likes closed groups of status officials that arent
universally accessible and the authority of officialdom against public opinion (985).
Democracy as such is opposed to the rule of bureaucracy (991).
C. By passive democratization Weber means a leveling of the governed; for examples
of where it happened see 985-86 [only useable if youre already familiar with those
examples b/c no detail given].
D. Motives behind such passive democratization are economic (e.g. economicallydetermined origin of new classes) and/or political (e.g. foreign affairs) (986).
E. Where older structural forms were already highly technically developed, bureaucracy
was slower to develop because technically superior impetus was weaker (987).
IX. The Objective and Subjective Bases of Bureaucratic Perpetuity (987-989)
Once fully established, bureaucracy is one of the hardest social structures to destroy
(987).
Bureaucracy is the means of transforming social action into rationally organized
action and thus is a power instrument of the first order for one who controls the
bureaucratic apparatus (987)Still asking why bureaucracy has so much power?
Because under otherwise equal conditions, rationally organized and directed
action is superior to every kind of collective behavior and also social action
opposing it. Where administration has been completely bureaucratized, the
resulting system of domination is practically indestructible (987).
The individual bureaucrat is chained to his activity in his entire economic and
ideological existence. In the great majority of cases he is only a small cog in a
ceaselessly moving mechanism which ascribes to him an essentially fixed route of
march (988). Unless he is at the very top, he cannot start or stop anything.
The ruled cannot dispense with the bureaucratic apparatus once it exists, for stopping
it results in chaos (and the masses depend especially on the bureaucratic organizations
of private capitalism for their material fate) (988). They cannot replace it easily
because it rests on expert training, a functional specialization of work, and an
attitude set on habitual virtuosity in the mastery of single yet methodically integrated
functions (988).
Because bureaucracies are indispensable and impersonal, they are very easy to steer
once one has gained control over themeven if the enemy takes over, it is in
everybodys best interest to keep the thing runningmaking revolution, in the
sense of the forceful creation of entirely new formations of authority, more and more
impossible (989).
X. The Indeterminate Economic Consequences of Bureaucratization (989-990)
The consequences of bureaucracy depend upon the direction which the powers using
the apparatus give to it, though very often, crypto-plutocratic distribution of power
results (989). The economic effects of bureaucracy are varied, their direction
depends on presence of other factors. The social effects, however, are leveling (990).
XI. The Power Position of the Bureaucracy
A. Being functionally indispensable does not necessarily translate into lots of power for
bureaucracy. However, the power position of a fully developed bureaucracy is
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