LECTURE 8

Bureaucracy, defects of bureaucracy, Civil

Services Reforms and New Public Management.
WEBER’S CONCEPT OF
BUREAUCRACY
THREE TYPES OF AUTHORITY
B U R E A U C R A C Y; I D E A L T Y P E A D M I N I S T R AT I O N
 Written Rules and Regulations

Specialization

DISTINCTIVE Hierarchy of authority

F E AT U R E S O F
B U R E A U C R A C Y: Impersonal relations

Trained personnel

Organizational freedom
A N A LY S I N G B U R E A U C R A C Y
 A D VA N TA G E S O F
BUREAUCRACY
 Specialized division of labour

 Rational code of conduct

 Job security

 Fosters meritocracy

 Centralizes power (supervision by managers and chain of command)

 Best practices are generated

 Creates predictability

 Increased productivity
D I S A D VA N TA G E S O F B U R E A U C R A C Y

 1. There is no emphasis on creating additional competencies.

Within the hierarchal structures of a bureaucracy, workers are continually promoted until they
reach a position where they’re initially incompetent. This is the position where people will
remain until they decide to retire because there is no emphasis on creating new or additional
competencies within the bureaucratic structure. This means a bureaucracy continues to
function only because there are competent employees trying to achieve positions with more
power.
 2. Despotism, elitism and rigidity due to strict control and domination due to centralized
control.
 3. It fosters a structure that doesn’t create true productivity.
A bureaucracy creates numerous rules and laws that must be followed to the benefit of all. The
problem with this is that additional rules and laws can be added at virtually any time, complicating
the workloads that people must endure. This may include additional forms to fill out, new filing
regulations, or new evaluations that must be conducted. It is a process that fosters safe productivity,
but limits the true productive potential of individuals and departments.
 4. It creates monotony
Workers may seek to earn merit-based promotions based on their competencies, but there is no
guarantee that advancement will occur immediately. With quota-based systems in place, productivity
may not lower, but it will not maximize either.
 5. There is less freedom to act within a bureaucracy.
Because rules and laws govern the actions of a worker within a bureaucracy, there is less freedom to
act or make independent decisions. Actions are dictated by what the rules or laws want. If a worker
steps outside of those rules or laws without permission, even if it is the right thing to do, they may
find themselves facing consequences, such as job termination or even imprisonment.
 6. The potential of inefficiency is as high as the potential for efficiency.
Many bureaucracies have structures where workers are paid with fixed salaries. They are given fixed
benefits. It requires many workers to complete repetitive tasks or supervise those who are completing
repetitive tasks. Qualifications and merits may create less overall competition for open positions, but once
those positions are filled, it can feel like a dead-end street to the worker.
 7. It is difficult to maintain high morale within a bureaucracy.
Repetitive patterns can be difficult to maintain if there isn’t a vision or purpose to the actions. A
bureaucracy encourages praise because of the way a task is fulfilled instead of the quality of the fulfillment.
This creates low morale because the goals of the individual become a higher priority than the goals of the
bureaucratic structure.
 8. It reduces the opportunity to quickly adapt to changing circumstances.
Because a bureaucracy is so dependent on rules and regulations, changes to a business or international
governmental landscape can be difficult. It takes time for a bureaucracy to draft new rules and regulations to
the new environments that have evolved. It can take so long, in fact, that a second evolution can take place
before the bureaucracy has adapted to the first evolution. If enough market evolutions take place before a
company or government adapts to it, then it will become irrelevant.
C H A L L E N G E S FA C E D B Y B U R E A U C R A C Y I N
PA K I S TA N
 Political interference:
The bureaucracy in Pakistan often faces political interference with politicians exerting influence over their
decisions and actions. This leads to a lack of independence and impartiality in decision-making.
 Corruption:
Corruption is a significant challenge for the bureaucracy in Pakistan. It is a pervasive problem that affects
all levels of government and it undermines the credibility and effectiveness of the bureaucracy. Corruption
entails abuse of authority which can stem from monetary to moral considerations
 Lack of resources:
The bureaucracy in Pakistan often faces a shortage of resources including financial resources personnel and
equipment. This makes it difficult for them to deliver services effectively. The budget 2023-2024 is worth
14 trillion rupees amid high inflation and political tensions.
 Lack of capacity:
The bureaucracy in Pakistan often lacks the capacity to perform their duties effectively. This is due to a lack
of training and professional development opportunities as well as a lack of performance incentives.
 Bureaucratic red tape:

Bureaucratic red tape is a common problem in Pakistan with complex rules and regulations that can be
difficult to navigate. This leads to delays and inefficiencies in decision-making and service delivery.
(lack of documentation and digitalization)
 Inadequate legal framework:

The legal framework for the bureaucracy in Pakistan is often inadequate with laws and regulations that
are outdated or not enforced. This makes it difficult for the bureaucracy to enforce rules and
regulations effectively. (Civil Servants Conduct Rules 1964, Leave Rules 1980)
 Political instability:

Pakistan has a history of political instability which can make it difficult for the bureaucracy to perform
its duties effectively. Changes in government can lead to changes in policy and priorities which can
disrupt the work of the bureaucracy.
 Generalist administration.
I M PA C T O F B U R E A U C R A C Y O N G O V E R N A N C E
I N PA K I S TA N
 1. Role in implementing policies

One of the key ways in which the bureaucracy has impacted governance in Pakistan is through its role
in implementing policies. The bureaucracy has been responsible for implementing a wide range of
government policies from social welfare programs (BISP, Akhuwat Foundation, Ehsaas) to economic
development initiatives(POS integration, broadening tax net, documentation of economy, digitalizing
portals). In some cases the bureaucracy has been able to implement these policies effectively
improving the lives of citizens and promoting development. However in other cases the bureaucracy
has struggled to implement policies due to a lack of resources capacity or political interference.

2. Role in service delivery

Another way in which the bureaucracy has impacted governance in Pakistan is through its role in
service delivery. The bureaucracy has been responsible for delivering a wide range of public services
from healthcare to education to infrastructure. In some cases the bureaucracy has been able to deliver
these services effectively improving the quality of life for citizens. However in other cases the
bureaucracy has struggled to deliver services due to a lack of resources corruption or inefficiencies.
 3. Relationship with elected officials
The bureaucracy has also impacted governance in Pakistan through its relationship with elected
officials. The bureaucracy has traditionally been seen as a powerful and independent institution
with the ability to influence government policy and decision-making. However this relationship
has been characterized by political interference corruption and a lack of accountability. This has
undermined the effectiveness and legitimacy of the bureaucracy and contributed to a lack of trust
in government institutions.
R E F O R M I N G T H E B U R E A U C R AT I C S Y S T E M I N
PA K I S TA N
 1. Strengthening accountability mechanisms: The bureaucracy needs to be held accountable for
its actions and decisions. This can be achieved by strengthening existing accountability
mechanisms and creating new ones where necessary. For example an independent ombudsman or
anti-corruption commission can be established to investigate complaints against the bureaucracy
and hold officials accountable for their actions.
 2. Improving recruitment and training: The recruitment process for the bureaucracy needs to be
transparent merit-based and free from political interference. This can be achieved by establishing
an independent body to oversee the recruitment process and ensure that only the most qualified
candidates are selected. Additionally training programs should be established to provide ongoing
professional development for bureaucrats with a focus on building the skills needed to effectively
perform their duties.
 3. Streamlining bureaucratic procedures: The bureaucratic process in Pakistan is often
cumbersome and inefficient leading to delays and inefficiencies in service delivery. Streamlining
bureaucratic procedures and reducing red tape can help to make the system more efficient and
effective. This can be achieved by conducting a review of existing procedures and regulations
with a focus on identifying areas where improvements can be made.
 4. Promoting transparency and openness: The bureaucracy needs to be more transparent and open in
its operations. This can be achieved by establishing a system for public access to information and
ensuring that officials are required to disclose their assets and interests. This can help to promote
greater accountability and reduce opportunities for corruption.
 5. Encouraging innovation and entrepreneurship: The bureaucracy needs to be more open to
innovation and entrepreneurship with a focus on encouraging new ideas and approaches to problem-
solving. This can be achieved by establishing incubation centers and providing funding and support
to entrepreneurs who are developing innovative solutions to societal problems.
 6. Creating an enabling environment for civil society: Civil society has an important role to play in
holding the bureaucracy accountable and promoting good governance. Creating an enabling
environment for civil society can help to promote greater transparency accountability and
participation in decision-making. This can be achieved by strengthening laws that protect the rights
of civil society organizations and providing them with the resources and support they need to
operate effectively.
PROPOSED REFORMS
 Merit-based recruitment and promotions:

The recruitment and promotion process for bureaucrats should be merit-based and transparent, with no
political interference. This will ensure that only qualified and competent individuals are selected for
bureaucratic positions.
 Professional development and training:

The bureaucracy should undergo professional development and training to improve their skills and
knowledge. This will enhance their capacity to perform their duties effectively and efficiently.
 Performance-based evaluation:

Bureaucrats should be evaluated on their performance based on clearly defined criteria. This will ensure
that they are held accountable for their actions and that their performance is transparent.
 Strengthening accountability mechanisms:
Independent oversight mechanisms should be established to investigate complaints against bureaucrats and
hold them accountable for their actions. This can include an independent ombudsman or anti-corruption
commission.
 Streamlining bureaucratic procedures:
Bureaucratic procedures and regulations should be reviewed and simplified to reduce delays and inefficiencies.
This will make the bureaucratic process more efficient and effective.
 Promoting transparency and openness:
Bureaucrats should be required to disclose their assets and interests, and there should be a system in place for
public access to information. This will increase transparency and accountability in the bureaucracy.
 Encouraging innovation and entrepreneurship:
Bureaucrats should be encouraged to be innovative and entrepreneurial in their approach to problem-solving.
This can be achieved through the establishment of incubation centers and providing funding and support to
entrepreneurs.
CHALLENGES IN IMPLEMENTING REFORMS
 Resistance to change: Bureaucrats who have been accustomed to the old ways of doing things may resist reforms
particularly if the reforms threaten their power privileges or status. Overcoming this resistance to change requires strong
leadership and effective communication.
 Political interference: Politicians may interfere with the implementation of reforms if they perceive that the reforms
threaten their interests or those of their supporters. This can include appointing bureaucrats who are not qualified or
competent or who are loyal to the ruling party rather than to the state.
 Lack of resources: Implementing reforms may require significant resources including funding technology and personnel. In
a country like Pakistan where resources are limited this can be a major challenge.
 Lack of political will: Implementing reforms requires political will from government leaders which may be lacking in some
cases. Politicians may be hesitant to implement reforms that are unpopular or that they fear may hurt their electoral
prospects.
 Capacity constraints: The bureaucracy may lack the capacity to implement reforms particularly if the reforms are complex
or require specialized skills or knowledge. This can include a lack of trained personnel inadequate technology or outdated
procedures.
 Cultural barriers: Cultural barriers may also present a challenge to implementing reforms particularly if the reforms are
seen as conflicting with traditional values or practices.
 Coordination challenges: Implementing reforms may require coordination among multiple government agencies or
stakeholders which can be difficult to achieve.
N E W P U B L I C A D M I N I S T R AT I O N / D E V E L O P M E N T
A D M I N I S T R AT I O N
S A L I E N T F E AT U R E S
 New Public Administration is an anti-positivist, anti-technical, and anti-hierarchical reaction against
traditional public administration.
 A practiced theory in response to the ever changing needs of the public and how institutions and
administrations go about solving them.
 Its focus is on the role of government and how it can provide these services to citizens who are a part of the
public interest
 New Public Administration traces its origins to the first Minnowbrook Conference held in 1968 under the
patronage of Dwight Waldo. This conference brought together the top scholars in public administration and
management to discuss and reflect on the state of the field and its future.
 A call to revamp the ethical obligations of the service sector was necessary in rebuilding the public's trust of
government and bureaucracy in which had been plagued by corruption and the narrow self interests of
others.
N P M T H E O RY D E A L S W I T H T H E S E C O N C E R N S :
• Democratic citizenship; Refers directly to the belief in creating a government where the
"common man" has a voice in politics. For such an approach to work, citizens must become
aware, knowledgeable, and active in their communities and nations. True democratic citizenship
requires more than voting for representatives. It requires using one's own mind, voice, and
actions.[4]
• Public interest; Refers to the collective common good within society, to which is the main
objective of public interest.
• Public policy; The means by which new public policy is enacted, and introduced. Not limited in
participation of the public but encouraged involvement.
• Services to citizens; Providing and upholding the moral and ethical standard in regards to
meeting the needs of citizens through institutions and bureaucracies.
 M A I N F E AT U R E S O F N P M
 1. Citizen's Empowerment:
 One of the key components of New Public Management is citizen empowerment. NPM ensures the
citizen's freedom of choice. It ensures quality services to citizens. Healthy competition in the service and
product sectors allows citizens to choose their services and products according to their needs and
choices.
 2. Services for Managerial support:
 The primary goal of managerial support services is to guarantee the level of service provided to citizens.
The best talent available on the market is therefore attracted by attractive pay, incentives, and other
benefits. NPM consistently recommends skill-improving programs to achieve the best results.
 3. Structural Changes in Administratio: the new public administration approach calls for small, flexible and
less hierarchical structures In administration so that the citizens administration interface could become
more flexible and comfortable. The organizational structure should be in with the socially relevant
conditions.
 [Link]-disciplinary Nature of Public Administration: knowledge from several disciplines and not just one
dominating paradigm build the discipline of public administration. The political, social, economic,
management and human relation approaches are needed to ensure the growth of discipline.
 5. Politics-Administration Dichotomy: since administrators today are involved in policy
formulation and policy implementation at all the stages. Dichotomy meaning "a division or
contrast between two things that are or are represented as being opposed or entirely different".
 6. Awareness: Bring attention to the works of a public administration and the task that public
administrators carry out for the community and for the government. Jobs of public administrators
affect communities and large numbers of people. The importance of the job should be
highlighted.
 7. Case Studies: Case studies help public administrators highlight situations and events where
policies were not carried out as they should be. They set an example for what to do and what
not to do. Case studies are a basic way to break down events in order to learn from other
people's mistakes and the effects those mistakes have had on the community. With public
administration being a job devoted to the people; it is an obvious way to see the reality of the
work you do in the community. While there are many cases where policies were not carried out
as planned. There are also plenty of examples of executed policies that have benefited
communities, and those are important to look at as well. (China’s poverty alleviation program)-
How China escaped the poverty trap
 Singaporean growth miracle , Bangladesh’s economic growth
 8. Structure Change: Public Administration is moving in many different directions, it is
more often called Public Management now. This is because the job is moving towards
a direction of not only implementing policy to people but also managing policies as it
trickles down through the law process, so that it is realistic for communities and the
people in them.
 9. Jack of All Trades: the best public administrators tend to be someone who has
knowledge in politics and law, but also has a hand in community functions. This
allows for a smooth transition from policy to implementation. Street smartness, street
style bureaucrats- departure from dull faces and grey suits=sharks.
 10. Change: With the changes in the world, the job of public administration has
changed. The job may be the same, but titles like Public Manager and Public Adviser
have replaced the title Public Administrator.
 Decentralization

Debureaucratization
4 DS OF NPM
Delegation

Democratization
THEMES OF NPM

 Relevance: Traditional public administration has too little interest in contemporary

problems and issues. Social realities must be taken into consideration. For example
considering Pakistan’s economic situation, policies such as export-oriented approach,
labour intensive industrialization and job creation should be considered.
 Values: Value-neutrality in public administration is an impossibility. The values being
served through administrative action must be transparent. To practice transparency in
public administration is to ensure citizens the availability of information which is deemed
public. This should be an organizational goal, and is to be taken into account when
conducting all public business regardless of one's job title. If the goal of an organization is
to serve the citizens to the best of their ability, then avoiding or failing to achieve
transparency would cause significant damage to the relationship between them and the
people they are aiming to serve.
 Social Equity: Realization of social equity should be a chief goal of public administration.
 Change: Skepticism toward the deeply rooted powers invested in permanent
institutions and the status quo. Operational flexibility and organisational adaptability to
meet the environmental changes should be in-built in the administrative system.
 Client Focus: Positive, proactive, and responsive administrators rather than
inaccessible and authoritarian "ivory tower" bureaucrats.
 Management-Worker relations. There should be equal emphasis both on efficiency
and humane considerations. The new approach has to satisfy both the efficiency and
the human relations criterion in order to achieve success.
 CRITICISM

 Landmark approach towards changing administration

 People-centric and value-laden approach
 Is decentralization always a viable solution?
 Management of change is difficult to bring about
 Setting priorities and making choices in the given Pakistan’s economic and political context.
 Political interference?
 The overall focus in NPM movement seems to be to make administration to be less
"generic" and more "public", less "descriptive" and more "prescriptive", less
"institution-oriented" and more "client-oriented", less "neutral" and more "normative"
but should be no less scientific all the same.
C I V I L S E RV I C E R E F O R M S
U N R E P O RT O N G L O B A L C I V I L S E RV I C E R E F O R M S

 1. it is merit-based and politically neutral;

 2. it is well-structured, “right-sized”, and well-paid;
 3. it is accountable, professional, and generally free of corruption;
 4. it is relatively autonomous, responsive, and representative;
 5. it is well-trained, performance-oriented, and relatively open.

Civil service reform is a deliberate action to improve the efficiency, effectiveness,

professionalism, representativity and democratic character of a civil service, with a view
to promoting better delivery of public goods and services, with increased accountability.
A RT I C L E S F O R R E A D I N G

 [Link]
 [Link]
_Pakistan.pdf