Proto-Bureaucracies

Abstract

The emergence of bureaucracy is often described as occurring at a particular historical period in a society, as a result of the pressures of war, the improvement of communication and transportation technologies, or societywide cultural changes. But recently many scholars have drawn attention to examples of meritocratic bureaucracies in societies otherwise organized according to patrimonial logics, what I call proto-bureaucracies. In this article I investigate one aspect of proto-bureaucracies that has not been examined in the literature: in a society characterized by patrimonial relations, the sudden introduction of meritocratic principles of recruitment may be interpreted as violating the principles of rewarding loyalty or kinship. This can fragment the political coalitions necessary to sustain a proto-bureaucracy. I argue through in-depth examination of one case, and secondary analysis of several others, that to manage the problem of exclusion successful proto-bureaucracies enact performative adherence to nonmeritocratic logics while protecting their meritocratic core. I argue that understanding contemporary proto-bureaucracies can help to develop an organizational strategy for strengthening governance and reducing corruption. The main lesson of proto-bureaucracies is that effective institutions generate exclusion, but meritocratic practices can be sustained if the exclusions they generate can be addressed in other ways.