Organizational Theory: Bureaucratic Models
Organizational Theory: Bureaucratic Models
Organizational
Theory and design
Organizational Theory and design
∙ Classical organizational theory: Bureaucratic Model, Modern view of Bureaucracies.
∙ Centralization and decentralization- Flat and tall structure, departmentation, line/staff concept of
organization.
∙ Modern Organizational theory: Organization as open system, information processing view,
Ecological theories.
∙ Modern organizational designs: project, matrix, horizontal, network designs.
CLASSICAL ORGANIZATIONAL THEORY:
BUREAUCRATIC MODEL, MODERN VIEW
OF BUREAUCRACIES.
CLASSICAL ORGANIZATIONAL THEORY
• The classical organization is most often associated with bureaucracy.
Even though organizations are undergoing dramatic, changes
bureaucracies still exist and must be understood to move toward and
interpret some of the new theories and designs.
• A bureaucracy is a form of organizational structure in which people
can be held accountable for their actions because they are required to
act in accordance with well-specified and agreed-upon rules and
standard operating procedures.
BUREAUCRATIC MODEL
• Bureaucratic theory and design are attributed to Max Weber in early 1990s.
• Weber presented what he thought was an ideal organization structure, which he
called a bureaucracy. His concerns for the ideal was a natural extension of his
interest in the development and change of western society. Specifically, weber
believed that rationalization is the most persistent cultural value of western
society. On an organization level, to Weber the bureaucracy represented a
complete rational form.
• Weber’s interest was in identifying a system of organization or an
organizational structure that could improve the way organizations
operate—that is, increase the value they create and make them more
effective. He favoured taking away authority from individuals and
investing it in rules, norms, and standards that constitute a
bureaucracy. According to Weber, it is a more efficient form of
organization because it aims at a high degree of precision, efficiency,
objectivity and rationality.
Weber’s six bureaucratic principles
• Principle One: A bureaucracy is founded on the concept of rational-legal authority.
• Principle Two: Organizational roles are held on the basis of technical competence.
• Principle Three: A role’s task responsibility and decision-making authority and its
relationship to other roles should be clearly specified.
• Principle Four: The organization of roles in a bureaucracy is such that each lower
office in the hierarchy is under the control and supervision of a higher office.
• Principle Five: Rules, standard operating procedures, and norms should be used to
control the behavior and the relationship between roles in an organization.
• Principle Six: Administrative acts, decisions, and rules should be formulated and
put in writing.
Weber specified several characteristics of his ideal organization structure. The
four major ones are the following:
Weber stated: "the organization of offices follows the principle of hierarchy: that is,
each lower office is under the control and supervision of a higher one". These
bureaucratic characteristic forces control over every member in the structure. Some
organization theorists, such as Herbert Simon, have pointed out that hierarchy is the
natural order of things.
3. A system of abstract rules.
Weber felt a need for "a continuous organization requires a set of formal rules". A
rational approach to organization requires a set of formal rules to ensure uniformity
and coordination of effort. A well-understood system of regulations also provides
the continuity and stability that Weber thought was so important. Whereas
personnel may frequently change, rules persist. They may range from no smoking
in certain areas to the need for board approval for multi-thousand-dollar capital
expenditures.
4. Impersonal relationships.
It was Weber's belief that the ideal official should be dominated by "a spirit of
formalistic impersonality, without hatred or passion, from the viewpoint of ideal
rationality and not of realistic implementation. He felt that in order for bureaucrats
to make completely rational decisions, they must avoid emotional attachment to
subordinates and clients/customers
Other features…
• Employment is based on technical qualifications.
• The bureaucrat is protected against arbitrary dismissal, and promotions are made
according to seniority and/or achievement's sum up
• No real-world organization exactly follows the Weber model.
Bureaucratic Dysfunctions.
1. The Dysfunctions of specialisation.
Specialization has been shown to lead to increased productivity and
efficiency but also to create conflict between specialized units, to the
detriment of the overall goals of the organization. For example,
specialization may impede communication between units. The
management team of a highly specialized unit has its own terminology
and similar interests, attitudes, and personal goals. Because "outsiders are
different", the specialized unit tends to withdraw into itself and not fully
communicate with units above, below, or horizontal to it. Performing a
highly specialized job is also a major cause of employee boredom and
burnout-blue-collar blues and white-collar woes.
2. Dysfunctions of hierarchy.
1. Bureaucracy does not adequately allow for personal growth and the development
of mature personalities.
3. It does not take into account the informal organization and the emergent and
unanticipated problems.
• It lays out the ground rules for • Managers fail to control the
designing an organizational development of the organizational
hierarchy properly—in the manner
hierarchy that efficiently controls advocated by Weber.
interactions between
• Organizational members come to
organizational levels. rely too much on rules and SOPs to
• It separates the position from the make decisions, and this
person overreliance makes them
unresponsive to the needs of
customers and other stakeholders.
MODIFICATIONS OF BUREAUCRATIC
STRUCTURING: CENTRALIZATION AND
DECENTRALIZATION- FLAT, AND TALL
STRUCTURE, DEPARTMENTATION, LINE/STAFF
CONCEPT OF ORGANIZATION.
• Vertical structural analysis concentrates on centralization vs
decentralization (authority) and Flat v/s tall structuring concentrates on
decentralization (limited span of control)
• Tall organization structure- a series of narrow span of control
• Flat organization structure-wide span of control
Types
1. Geographic or territorial, concentration/centralization or
dispersion/decentralization of operations.
2. Functional centralization and decentralization
3. analytical use of the concept
1. Geographic or territorial concentration/centralization or
dispersion/decentralization of operation.
• The key for viewing organizations as open systems is the recognition of the
external environment as a source of significant input. In systems
terminology, the boundaries of the organization are permeable to the
external environment (social, legal, technical, economic and political).
• The simplest open system consists of an input, a transformation process, and
an output, which is depicted thus:
Input → Transformation process → Output
• A system cannot survive without continuous input, the transformation
process, and output.
• There are many types of inputs, transformation processes, and outputs.
•One kind of input actually enters the open system in the “closed”
sense. This type of input has a direct effect on the internal system
rather than an outside effect-in systems jargon, it loads the system.
• Another type of input affects the system in an “open” sense. This input
would consist of the entire environmental influence on the system.
•Still another kind of input takes the form of replacement or recycling.
When a component of the system is ejected or leaves, the replacement
becomes an input. This recycling process perpetuates the system.
• The third and final major component of any simple open system is the
output. This is represented by the product, result, outcome, or
accomplishment of the system.
The simple open-systems concept has universal applicability.
• An economic institution
people Transformation
process
services
Transformation
monetary process
Profit /loss
Transformation
material And pollutions
material process
Product sales
Money Transformation
process
dividends
Human Transformation
Role behavior
process
resources Law and Transformation
Taxes
process
values
• From an organizational structure standpoint, the critical factor is the
design of the transformation process. Oddly, this transformation design
involves a close-systems analysis. In other words, the closed system is
a subsystem of the open system. The closed-systems aspects of the
transformation process are concerned with the interrelated and
interdependent organizational subsystems of structure, processes, and
technology. These subsystems must be organized in such a way that
they will lead to maximum goal attainment or output.
INFORMATION PROCESSING VIEW
∙ First, births taper off as the availability of resources in the environment for
late entrants diminishes. First-mover advantages are the benefits an
organization derives from being an early entrant into a new environment.
Latecomers enter an environment that is partially depleted of the resources
that they need to grow.
∙ The second factor that decreases the birth rate is the difficulty of competing
with existing organizations for resources. Potential entrepreneurs are
discouraged from entering an industry or market. Moreover, existing
companies may band together and make it very hard for new companies to
enter the market.
Survival Strategies
R-strategy versus k-strategy Specialist strategy versus generalist
strategy
• Organizations that follow an • Specialist organizations (or specialists)
r-strategy are founded early in a new concentrate their competences and
environment—they are early entrants. skills to compete for resources in a
single niche—for example,
smartphones.
• Organizations that follow a K-strategy • Generalist organizations (or
are founded late—they are late generalists) use their well-developed
entrants. competences to compete for resources
in many or all niches in an
environment—for example,
smartphones, inexpensive cellphones,
landline phones, netbooks, tablets, and
so on
The Process of Natural Selection
• Early in an environment, as a niche develops and new resources become
available, new organizations are likely to be r-specialists
• As they grow, they often become generalists and compete in new niches.
While this is happening, however, K-generalists move into the market and
threaten the weakest r-specialist organizations.
• Eventually, the strongest r-specialists, r-generalists, and K-generalists
dominate the environment by serving multiple market segments and by
pursuing a low-cost or differentiation strategy.
• Large companies, having chosen the K-generalist strategy, often create
niches for new firms to enter the market, so K-specialists are founded to
exploit the new market segments. In this way, generalists and specialists can
coexist in an environment because they are competing for different sets of
resources.
• The driving force behind the population ecology model of
organizational birth is natural selection, the process that ensures the
survival of the organizations that have the skills and abilities that best
fit with the environment.
• Over time, weaker organizations, such as those with old-fashioned or
outdated skills and competences or those that cannot adapt their
operating structure to fit with changes in the environment, are selected
out of the environment and die. New kinds of organizations emerge
and survive if they can stake a claim to an environmental niche.
Some organization theorists feel that contingency theory should be replaced by an
ecological view. This new approach is best represented by what is called “population
ecology” by Hannan and Freeman. It can be summarized as follows:
1. It focuses on groups or populations of organizations rather than individual ones.
2. Organizational effectiveness is simply defined as survival.
3. The environment is assumed to be totally determining. At least in the short or
intermediate term, management is seen to have little impact on an organization's
survival.
4. The carrying capacity of the environment is limited. Therefore, there is a
competitive arena in which some organizations will succeed and others will fail.
MODERN ORGANIZATIONAL DESIGNS: PROJECT, MATRIX,
HORIZONTAL, NETWORK DESIGNS.
PROJECT DESIGNS
• The use of project designs has increased in all organizations that
require a great deal of planning, research and coordination.
• Together with the aerospace industry, project designs are becoming
widely used in other industrial corporations and also in financial
institutions, health care facilities, government agencies, and
educational institutions.
• Projects are of various degrees of importance and magnitudes are
always under way in modern organizations. The project structure is
created when management decides to focus a great amount of talent
and resources for a given period on a specific project goal.
Project design A
• Project managers under “PROJECT A” design have no activities or
personnel reporting directly to them. The project manager, along with
the heads of quality control, research and development, contract
administration, and scheduling, acts in a staff capacity to the general
manager. The project manager must rely on influence and persuasion
in performing a monitoring role, with direct line authority exercised
only by the general manager.
Project design B
• The project managers have all the personnel necessary for the project.
They have staff and functional line personnel reporting directly to
them. The project managers under the aggregate design have full
authority over the entire project. In reality, the aggregate project
organization is very similar to the traditional product or unit form of
departmentation.
• The project organization almost always coexists with the more traditional
functional structure. But project experts stress that even though there are
many similarities between project and functional organizations, project
managers must take a new approach to their jobs:
1. They must become reoriented away from the purely functional approach to
the management of human and nonhuman resources.
2. They must understand that purposeful conflict may very well be a necessary
way of life as they manage their project across many vertical organizational
lines.
3. They must recognize that project management is a dynamic activity in
which major changes are almost the order of the day.
MATRIX DESIGNS
• The search for better and faster ways to develop products and respond
to customer needs has led some companies to choose a matrix
structure, an organizational design that groups people and resources
in two ways simultaneously: by function and by product. A matrix
structure is both similar to and different from a product team structure.
• When a project structure is superimposed on a functional structure, the
result is a matrix.
• The figure shows a very simplified matrix organization. Here, the
functional department heads have line authority over the specialists in
their departments (vertical structure). The functional specialists are
then assigned to given projects (horizontal structure). These
assignments are usually made at the beginning of each project by
collaboration between the appropriate functional and project
managers.
• Once the company has reached the matrix stage, there are also stages or
degrees of this form of organization: First stage of matrix is usually just a
temporary task force; this is followed by the creation of permanent teams or
committees organized around specific needs or problems. The last stage
occurs when a manager is appointed and held responsible for coordinating
the activities and inputs of the teams or committees.
• Similar to a project manager, the matrix manager needs negotiation skills
and a high tolerance for ambiguous power relationships. There is also recent
support for the use of matrix designs as being appropriate and responsive to
the strategies of diversified multinational corporations.
Matrix Designs directly violate classical principles
• Horizontal designs are at the other end of the continuum from the traditional
vertical, hierarchical structures.
• The project and especially the matrix designs were the first to emphasize the
importance of horizontal over traditional vertical structuring of the
organization.
• Anand and Daft noted that “the horizontal organization advocates the
dispensing of internal boundaries that are an impediment to effective
business performance. If the traditional structure can be likened to a
pyramid, the metaphor that best applies to the horizontal organization is a
pizza—flat, but packed with all the necessary ingredients.
• Horizontal designs better facilitate cooperation, teamwork, and a customer
rather than a functional orientation.
Guiding principles that define horizontal organization design:
.
1 Greenfield redesign.
As the term implies, this means starting from just a piece of green field or from a
clean slate, breaking completely from the classical structure and establishing a
totally different design.
“People should not be doing other people’s job but they need to understand all
of those other jobs; they need to understand how their job fits into the overall
performance of the vision and how the other jobs do as well.”
2. Rediscovery redesign.
This is a more usual type of redesign, whereby established companies
such as general Electric and Chrysler return to a previously successful
design by eliminating unproductive structural additions and
modifications. For example, Chrysler not only created cross-functional
teams but also returned to a more centralized structure that could better
coordinate and controls the needed innovations and acquisitions/
divestments for its product line.
3. Network design.
In the network approach, the firm concentrates on where it can add the
greatest value in the chain, and it outsources to upstream and/or
downstream partners who can do a better job. This network of the firm
and its upstream and downstream partners can be optimally effective
and flexible.
Another network approach is to require internal units of the firm to
interact at market prices-buy and sell to each other at prices equal to
those that can be obtained by outsourcing partners.
• Network organizations have been discussed in the academic literature for a number of
years. For example, organization theorists Miles and Snow identified what they call the
dynamic network. This involves a unique combination of strategy, structure, and
management processes. They more recently have described the network organization as
follows: “Delayered, highly flexible, and controlled by market mechanisms rather than
administrative procedures, firms with this new structure arrayed themselves on an
industry value chain according to their core competencies, obtaining complementary
resources through strategic alliance and outsourcing.”
• Tapscott and Caston note that such networked organizations are “based
on cooperative, multidisciplinary teams and businesses networked
together across the enterprise. Rather than a rigid structure, it is a
modular organizational architecture in which business teams operate
as a network of what we call client and server functions.”
• Network structure is a cluster of different organizations whose actions
are coordinated by contracts and agreements, rather than by a formal
hierarchy of authority. Very often one organization takes the lead in
creating the network as it searches for a way to increase effectiveness.
• Network structures often become very complex as a company forms
agreements with a whole range of suppliers, manufacturers, and
distributors to outsource many of the value-creation activities
necessary to produce and market goods and services. For example,
Nike, the largest and most profitable sports shoe manufacturer in the
world, has developed a very complex network structure to produce its
shoes. Almost all the other functional specialisms that Nike needs to
produce and market its shoes have been outsourced to companies
around the world!
Advantages
• First, to the degree that an organization can find a network partner that can perform a specific
functional activity reliably, and at a lower cost, production costs are reduced.
• Second, to the degree that an organization contracts with other organizations to perform specific
value-creation activities, it avoids the high bureaucratic costs of operating a complex organizational
structure.
• Third, a network structure allows an organization to act in an organic way. If the environment
changes, for example, and new opportunities become apparent, an organization can quickly alter its
network in response. An organization that performs all of its own functional activities would take a
longer time to respond to the changes taking place.
• Fourth, if any of its network partners fail to perform up to company’s standards, they can be replaced
with new partners.
• Fifth, a very important reason for the development of networks has been that organizations gain
access to low-cost overseas sources of inputs and functional expertise, something crucial in today’s
changing global environment.
Disadvantages