Abstract
First, something about the word. 'Bureau' (French, borrowed into German) is a desk, or by extension an office (as in 'I will be at the office tomorrow'; 'I work at the Bureau of Statistics'). 'Bureaucracy' is rule conducted from a desk or office, i.e. by the preparation and dispatch of written documents - or, these days, their electronic equivalent. In the office are kept records of communications sent and received, the files or archives, consulted in preparing new ones. This kind of rule is of course not found in the ancient classifications of kinds of government: monarchy, aristocracy, democracy - and bureaucracy? In fact it does not belong in such a classification. It is a servant of government, a means by which a monarchy, aristocracy, democracy, or other form of government, rules. Those who invented the word wanted to suggest that the servant was trying to become the master. Weber is of course aware of this tendency; in fact he attacked the pretensions of the Prussian bureaucracy to be an objective and neutral servant of society, above politics, and emphasized that every bureaucracy has interests of its own, and connections with other social strata (especially among the upper classes); see Beetham, chapter 3. But formally and in theory the bureaucracy is merely a means, and this is largely true also in practice: someone must provide policy direction and back the bureaucrat up (if necessary) with force. 'At the top of a bureaucratic organization, there is necessarily an element which is at least not purely bureaucratic', SEO, p. 335, to give policy direction
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