Very little social scientific research has considered the question of bureaucratization in the individual governmental agency. Departing from an experiment in de‐bureaucratization, this article traces the origins of two core components of bureaucracy‐hierarchy and rules‐in the U. S. Department of State. The discussion emphasizes the interaction between the internal structure of a public organization and two sets of environmental factors: the power setting and the operating environment. It is argued that this interaction produces a high degree of message generation, top‐down demands for accountability and control, and bottom‐up pressures for clearance and guidance. These conditions lead to a heavy message volume and a high degree of centralization which, in turn, bring on communications overload. Bureaucracy increases as overload is handled through hierarchical differentiation and the proliferation of rules.
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