Bureaucracy

Bureaucracy:


Deena Weinstein in her book Bureaucratic Opposition has developed most effectively the idea of bureaucracy as a political system. She argues that bureaucracies are analogous to authoritarian states: in both cases people are expected to stay in their places, to do as they are told, to offer opinions only when asked, and to identify solely with the rulers and the official ideology. Within authoritarian states, and within bureaucracies, individual and collective oppositions exist. The opposition may be to particular policies, to corruption, to exploitation or to organisational structures. Rather than being misfits who are disturbing efficient functioning, bureaucratic oppositions should be analysed as political oppositions, that is as challenges to the use or distribution of power in the bureaucracy.

Weinstein's analogy between bureaucracies and states is particularly revealing with regard to their links with the war system. Bureaucracies and states each prop up systems of privilege and power. It is appropriate that bureaucracy, as the building block of the state, is similar in the nature of its power structure to a state, an authoritarian state no less!

One important difference between bureaucracies and states is that most bureaucracies rely only on nonviolent sanctions against dissidents, whereas states can call on police and military forces if necessary. Most bureaucracies rely not on the use of force but more on a system of rewards, including favourable feedback and promotions, and on a system of rules that legitimises the structure. Willing service to 'higher causes' within a bureaucracy or in a state provides much more stability than reliance on coercion. Antagonism is further subdued by permitting nonconformity within limits, and using various methods to buy off discontent and coopt dissident leaders. Non-coercive control is all the more effective because it is difficult to recognise and to oppose.

Under state socialism the dominance of bureaucracy is quite overt. State bureaucracies administer all possible aspects of life. In parallel with these state bureaucracies, penetrating them, controlling them and constrained by them is another powerful bureaucracy, the communist party. In each case bureaucratic elites are in positions of state power. Hence state socialism is also sometimes called 'bureaucratic socialism.'

In capitalist societies the dominance of bureaucracy is less immediately evident, but the practice is not vastly different. In many capitalist societies, national economic and political directions are set through a system which is called corporatism. Elites from key influential sectors, typically government, corporations, state bureaucracies and trade unions, get together formally or informally to negotiate the framework for political and economic decision-making. This may occur through national planning agreements between corporations and trade unions, by creation of government departments or advisory bodies on women's affairs, the environment or science, or bipartisan agreement on military expenditures.

As I interpret it, corporatism is essentially coordination by elites, most of whom are bureaucratic elites. To have an effect on policy, one must work through a bureaucratic structure in one sector or another, whether it is a political party, a corporation, a trade union or an environmental advisory body. The appearance is that all interests are represented. The bureaucratic underpinning of corporatism ensures that power remains at the top.