Neo-Bureaucratic Structure : A Consequence of e- Governance
The capacity of man to visualize, rationalize and then to transform the society has always put different institutions on test for their abilities to cater to the changing expectations of people. Since when the social structures came into existence different forms of polities also emerged to fulfill the peoples' expectations. The bureaucratic system thus has sanctity of being an institution of conversion of public demands into operational reality irrespective of the type of political system inherited or adapted by any nation.. As a rational system of functioning, it is expected to operate in a manner, which is objective, transparent, and impartial. The Weberian model of bureaucracy provides the way to achieve these ends. The fundamental question then is why in practice it projects itself in an entirely different way. There are varieties of reasons for holding this relationship true which have been highlighted in the subsequent analysis. However it will be interesting to see how does e- governance affect
the different dimensions bureaucracy? Precisely, it focuses on automation, informatisation, and transformation so as to increase the pace of development. Thus the fundamental objectives are,
@ to have government which economizes,
@ to have government which multiplies output at same cost manifold
@ to have government which functions faster, better and creatively.
@ to have government which retrieves facts completely from archives to help bureaucrats to recycle them in such a way that this feed back can be utilized for making more prudent policies.
However to understand how e- governance can transpose government as an instrument for building up a society, based on a collaborative combinatbns of conventional values with scientific approach, having purpose of creating a better world. In this respect it would be essential to identify the modifications that are required in the conventional system of bureaucracy. It would be interesting to highlight the existing traits of bureaucracy and also the projectiona! trajectory of traits of bureaucracy.
Premises: This paper presents a conceptual framework of neo-bureaucratic structure having the basic impetus of e- governance. . The framework is based on three basic premises. These are:
@ The present bureaucratic structure is inadequate to respond to the call of e- Governance, because of the certain impediments, which are detrimental for the adaptation of this kind of system.
@ There is a possibility of transforming present conventional system of bureaucracy into Neo-Bureaucratic system with the help of interventional strategies of e-Governance that requires a careful study of interplay of its various components before planning and designing the strategies.
@ The importance of e-Governance lies in creating a global society, which has capacity to absorb divergent value patterns to eventually form universal normative axis having thrust on humane element.
It also addresses to the fundamental questions as to why there is a need to change the existent bureaucratic structure. The need arises because,
@ Individuals are becoming knowledge learner, thus making redundant the active- passive hierarchy of roles, which forms the basis of Weberian model.
@ When mega- culturalism is transcending as we are moving towards global society the national boundary of being cultural bounded bureaucratic entities must pave its way for a transformed structure of bureaucracy.
@ A new millennium phase must identify itself with neo bureaucratic structure to respond to the changing demands of the society.
The conventional bureaucratic system, which is based on bureaucratic impersonality and procedural orthodoxy, manifests itself in the form of impediments, which continue to affect the bureaucracy negatively. It will be pertinent to discuss these impediments briefly to get an insight
about the technicality of the governmental system. Bureaucratic Impediments : The conventional model categorically focuses on two dimensions viz.(i) Structural, relating to the hierarchical arrangement of positions, legal rational basis of authority, with the proper system of
allocation of responsibilities, and compensation,&(ii) Behavioral relating to merit based selections of officials with the emphasis on training.
Since this has been the ideal typical model, the operational reality has been different from the enumerated characteristics. Thus bureaucracy that was created to implement people centered policies
however manifested itself as,
@ Powerful instrument of letting out the selfinterest in whimsical manner.
@ An elitist social class, which is status conscious.
@ Becoming judgmental in nature it has violated the principle of merit in practice.
@ Training could not help much in bringing out desirable changes in the attitudes of bureaucrats.
@ Its manifestations in terms of pathetic bureaucratic features like red-tapism, delays in decision-making, favoritism, corruption etc.
@ The obsolete rule dependent system that failed to deliver the end outputs to the society.
On the basis of above analysis following impediments can be identified which can be seen as forming the major characteristics of
conventional system of bureaucracy.
Elitist class values : A selected section of society, which forms the part of bureaucratic system, develops its own value structure. This marginalizes the existing pattern of societal values at large to the extent that a parallel normative axis emerges, which revolves round power, status,
wealth etc. This retards the growth of any society and is detrimental for development. Procedural stagnation: Bureaucracy keeps on following procedures that are obsolete, expensive and do not help in achieving the extended domains of work and responsibility. The entire potentiality gets trapped in 'routinism' thereby blocking the flow of potential energy thus bringing out dissatisfaction amongst the people at large. The stagnation ultimately is resulting in the decay of the administration.
Attitudinal fixtures : The captivity of ideas amongst the bureaucrats' results in the fixation of attitudes thereby giving rise to the definitive
mindsets to look at situation from the limited perspective. The resultant impact gets manifested in the form of denial of innovative ways to resolve issues of public importance. Hence it hinders the effective communication and interaction. The absence of which will not facilitate free flow of ideas
to look at ail possible situations.
Rule Boundedness : The rules are framed to develop behavioral patterns that reduce human variance factor in the organization. Rules are also framed to give allocation of authority a legal rational basis within the defined domain of work jurisdiction. But when rules fail to respond to the requirements of change due to excessive dependence on them, then the ultimate result would be non-performance.
Apart from this the interpretation of rules might sometimes lead to the situationai conflicts hence delaying the fulfillment of objectives. This can also be viewed as an escapist root for not doing the assigned tasks.
Parochial interest: Once people enter in the bureaucracy the job security given to them in the form of career does not help them in becoming visionary. In addition to this it looses its value because rather than working as an instrument for conversion of social demands into reality it focuses more on fulfilling the self-interest. Social discontentment: Bureaucracy due to interplay of above stated impediments virtually
leaves its people dissatisfied as their needs remain unfulfilled. It thus sends negative fillers of its being an instrument of abusing authority. Hence it becomes a source of social discontentment and a feeling of not fulfilling the social obligation categorically affects their performance.
Burn out syndrome: Any system, which is low at taking risk causes mental and physical fatigue in people who are manning such organization. By strictly adhering to 'routine', the work is taken as burden; this leaves no scope for challenging roles. This in turn brings out feeling of non-performer. In addition to this, the other reason may be illusion of being overburdened with excessive workload, which would subsequently lead to the burn out syndrome. This declines the efficiency of the system.
In the era of knowledge management the features examined above must give way to pragmatism, and progressiveness to create a more humane society. This requires breaking away from the conventional system of rigidity towards a more evolved system focusing on the utilization of knowledge for facilitating the conversions of needs into reality. Thus there is a need to explore the possibilities of reshaping bureaucracy with renewed thrust. It is at this point that interventional strategies of e-Governance can be designed in such a way that desirable results can be produced with the purpose of replacing conventional system of bureaucracy with neo bureaucratic system.
Interventional strategies of e-Governance As e-Governance has shortened the gap between different cultures by trying to create a global society with mega cultural emphasis, the few strategies can be identified, the use of which will facilitate achievement of this objective, though management of these would vary in pace in different countries.
Transitive Counseling : in order to reduce the resistance, people need to be prepared for coming out of transitional phase. Thus proper counseling is required regarding changes in attitudes, reorienting mind sets etc. at various levels of governmental functioning.
Electronic Accessibility: There is a need to equip people with necessary knowledge regarding use of electronic multi media by imparting it through various Institutions. Technologically advanced Institutes with expertise must be set up which must established themselves as the centers of excellence by imparting the eknowledge to people.
Institutional Networking: Various agencies needed at different levels of governmental functionaries must be brought within the purview of constitutional framework by enacting laws for controlling their formal as well as informal constituents. A large-scale connectivity has to be
ensured.
Ethical Framework : Apart from legal framework morality has to be the key area where any society must work out strategic plan by designing ethos before adopting e- governance. The framework has to be supportive of fundamental societal normative pattern so that it gets extra leverage for perpetuating necessary values patterns. Working out the ethical framework is the key to move further by discarding obsolete set of values that often come in the way of potential utilization.
Role Shifting Strategies: New stresses are the by products of knowledge based society. Hence more humanitarian psychological coping mechanisms based on collaborative role shifts 2have to be introduced. Each role, organizational as well as personal must shift in such a way that
the effects of change can be managed without resulting into situation of crisis. This is to be learn that how & where role shift is needed. The failure of present form of bureaucracy to match the expected results of the knowledge based society, it is high time that a new system of
bureaucracy must be designed with the help of einterventions. Hence the need to have renewed structure of bureaucracy can not be denied specially if we intend to make our system more effective, responsive and humane in nature. Neo- Bureaucratic Structure: A Consequence
of e-Governance The conventional bureaucratic structure has many impediments due to which it has failed to respond to the changes in the desirable manner. However with the help of strategic planning a renewed bureaucratic structure can be created as an instrument capable of channelizing free flow of energy by molding itself as 'sensitivity- nurturant'
system based on the ethos of professional culture.
The conceptual framework of neo-bureaucratic system must focus on the following fundamental traits.
Universal Social Values: The elitist sets of values need to be replaced by universal set of values based on equal representation from all sections of society. This accumulation of divergent value sets must be rationalized through proper convergences to form a just society by inoculating
virtuous elements blended with basic scientific approach to look, analyze then respond to situations. This would release people from the pressures that are put on them because they represent certain sets of values.
Procedural Innovativeness: Obsolescence in procedures has no place in emerging scenario of e- governance. Procedures need to be updated in light of technological advancement In addition to learn about technical know how, people must know how to evolve creative ways in which
maximum output can be delivered for societal development.
Attitudinal Mobility : Fixation of attitudes is detrimental to the growth. Attitudes must have mobility so that sufficient space for collaborating
other positive ideas can be created. Reorientation of mind-set in the direction to 'delearn' old premises then to learn new procedures must take place so that fresh ideas gets it place in the administration. It is only through creativity that performance can be enhanced to the level of excellence.
Rule Flexibility; Rules are required to form a formal structure based on the allocation of authority. But the rigidity of rules with excessive dependence leaves sufficient room for alternative interpretations. Thus what is needed is set of wellframed rules with no ambiguity and enough flexibility so that required changes can be incorporated to cater to the emerging demands.
Wider Interest: Bureaucracy because has to work for societal interest it must create an open system which is transparent, responsive and accountable. This is possible when broader outlook replaces narrower outlook with commitment to the equality and justice. The associational reflections need to be completely avoided.
Social Contentment: When system gets evolved to a higher level of functioning as an effective instrument of converting public demands
into reality its utility gets reestablished. This also helps in understanding the importance of institutions and their social responsibilities thus bureaucracy emerges as a contended system.
Energy Recycling Syndrome : Once the energy blockers in the form of impediments are removed smooth flow of energy revitalizes the system. The entire potentiality of system as well as of others is utilized to its optimum. This facilitates the capacity utilization. The schematic representation of the relationship between bureaucracy, interventional strategy and neo-bureaucratic structure is shown as follows. This process of conversion explains the dynamics involved.
FORMATION OF GLOBAL SOCIETY
Transcending geographical boundaries Universalization of value patterns
Visionary world
Ideological collaborations
Peaceful coexistences
A well knitted world with proper networking
An eco friendly universe with humane thrust
( From 'conventional' to 'electronic' to have 'humane' governance)
Source: Designed by author herself, which was presented in International Seminar on e-governance held in South Korea in 2004. This schematic representation makes it clear that the future of bureaucracy as an instrument of transformation lies in adapting itself to meet out the challenges of coming times in such a way that it yields to the changing needs of the society. So far we have discussed the structural aspects of
bureaucracy but behavioral dimensions are equally important to understand the intricacies of the system. A comparative analysis can be made of the conventional system and neo-bureaucratic structure vis-a-vis the behavioral traits, which make them to behave in the manner both types, manifest themselves. This schema is self-explanatory because the objective is to create a society with right knowledge, right morality, and right way of perpetuating practicing ethos.
How to work out which is the best combination of strategic interventions.
@ Software development.
The future projection on the basis of this conceptual framework indicates the inevitability of e- governance even for those countries that are in the transitional phase of development.
The Interpretation : The above schema explains variety of combinations that are possible betweer types of bureaucracy and the behavioral traits of people in general. Bureaucracy would rule those people who have predominance of traits of Set A, because there will be the excessive tendency oi accepting tantrums of bureaucrats. On the contrary in a knowledge society, bureaucrats and people would develop a positive interface because system will be bound to respond to the logical demands of people. Thus the whole system of bureaucracy rationalizes ways of meeting out the needs of people with the help of e-governance. The other two combinations i.e. 3&4 are impossible because the conventional system is not capable of ruling those people who are aware and empowered
likewise, projectional bureaucracy can not work for those who are not interested in development.
In order to comply with the changes at least three problem areas must be addressed to facilitate the entire processes of conversions. These are,
@ How to locate the level/ nature of the problem.
@ How to find out the extent to which the bureaucratic operative axis needs to be realigned.
capacity of a system to utilize knowledge for evolving a visionary society however must take into account the supremacy of mind over machine, as mind and heart are the epicenters of human dynamics and creation of just society the end result.

Prof. Sangeeta Sharma, Dept. of Public Administration,
University of Rajasthan, Jaipur