Is Bureaucracy Compatible with Democracy?

Abstract

In his book, Democratic Autonomy: Public Reasoning about the Ends of Policy, Henry Richardson suggests a process-based objection to bureaucracy - that is, an objection to bureaucracy that does not refer primarily to results, but rather to an ethical flaw that is inherent to bureaucratic procedures. Richardson’s worry is that, while large and complex societies rely on bureaucratic agencies to implement policies, there is a threat of those within bureaucratic institutions having more power than the average citizen when it comes to making specific decisions about how to enact policy, and that this inequality in decision making power may be unjustified because undemocratic. If such inequality in decision making power is indeed a real threat, it will turn out that bureaucratic organisations, while being largely motivated by considerations of procedural fairness, may in fact constitute quite unfair procedures. Richardson proposes some institutional reforms that he thinks will enable us to avoid being dominated by bureaucracies, while retaining bureaucratic agencies, which he believes are necessary in modern societies. In what follows, I illustrate Richardson’s worry about bureaucratic domination and his proposed solution to the problem with a simplified, concrete example. If we compare Richardson’s proposed institutional reforms with Max Weber’s analysis of the concept of bureaucracy, however, I argue that it becomes apparent that bureaucracy is in fact incompatible with the sort of democracy that Richardson favours. If I am correct, this means that to the extent that we adopt Richardson’s proposed reforms, we will be replacing bureaucracies with something else.