In contrast to these older forms, modern bureaucracy has one characteristic which makes its inescapability much more definite: rational specialization and training. The Chinese mandarin was not a specialist but a gentleman with a literary and humanistic education. The Egyptian, Late Roman or Byzantine official was much more of a bureaucrat in our sense of the word. But compared to the modern tasks, his were infinitely simple and limited; his attitude was in part tradition-bound, in part patriarchally, that means, irrationally oriented. Like the businessman of the past, he was a pure empiricist. The modern official receives a professional training, which unavoidably increases, corresponding to the rational technology of modern life. . . . Whenever the modern specialized official comes to predominate, his power proves practically indestructible since the whole organization of elementary want satisfaction has been tailored to his mode of operation. A progressive elimination of private capitalism is theoretically conceivable. . . . What would be the practical result? The destruction of the steel frame of modern industrial work? No! The abolition of private capitalism would simply mean that the management of the nationalized or socialized enterprises would become bureaucratic. Are the daily working conditions of the salaried employees and the workers in the state-owned Prussian mines and railroads perceptibly different from those in big business enterprises? In truth, there is even less freedom since every struggle against a state bureaucracy is hopeless and since, in principle, nobody can appeal to an agency which would be interested in limiting it, contrary to what is possible in relation to a private enterprise. That would be the whole difference.
State bureaucracy would rule alone. The private and public bureaucracies which now work next to, and potentially against, each other and hence check one another to a degree would be merged into a single hierarchy. This would be similar to the situation in ancient Egypt, but it would occur in a much more rational and inescapable form.--Max Weber (1917) excerpted in State and Society: A Reader in Comparative Political Sociology, edited by R. Bendix, p. 301-302.
Richard Bellamy partially quotes the passage on p, 193 in his excellent (1992) Liberalism and Modern Society: A Historical Argument in his chapter on Max Weber. (Recall my more critical post here.) While Bellamy's book is not obscure it is somewhat unfairly rarely mentioned in the contemporary revival of so-called 'political realism.' The chapter on Weber and the critique of late twentieth century what he calls "neutralist liberalism" are both very nicely done and repay close reading. My favorite feature of Bellamy's book -- and the aspect that has not lost any significance at all -- is Bellamy's close attention to liberal thought in the context where survival of liberalism cannot be taken for granted (something true, I hasten to add, of liberalism everywhere and at all times).
Bellamy quotes the passage from Weber in the context of explaining Weber's views on the significance of the balancing of counter-veiling bureaucracies in industry and state in the service of Weber's larger argument against a fully planned economy. And it shows how prescient Weber was relative to Marxist revolutions to come. But also, that after the first world war, as well as the development of the cartelization of the German economy (something Lenin had also commented on), Europeans had already sufficient experience with the nature of (at least partially) planned economies to understand some of its structural political and economic weaknesses. I return to that below.
It is kind of amusing - in light of the recurring tendency in our philosophical self-understanding to treat empiricism as something noble and sophisticated -- that Weber identifies 'pure empiricism' with a kind of irrational orientation toward reality to be contrasted with a (modern) skilled control over one's environment in the context of the advanced division of labor (and rule-following). To what degree his comparative account of bureaucracy can survive scholarly scrutiny I leave to others. But it is important to see that for Weber modernity is characterized by the omni-presence of bureaucratic organization. It is an interesting question to what degree modern information technologies allow for a de-skilling of the bureaucracy (in the private and public sectors).
Now, in the quoted passage, Weber clearly anticipates Burnham's thesis defended in the Managerial Revolution (and in a different way, Galbraith). I don't recall Burnham crediting Weber. I don't mean to suggest that Burnham plagiarized Weber; it's pretty clear that they were both familiar with Mosca, Pareto, and Michels (who work through related ideas). But Weber turns their diagnoses into an argument for maintaining the market as a site of countervailing powers. And this anticipates the ORDO-liberals' emphasis that while power in the marketplace is dangerous (and certainly to be guarded against) it can also be a partial check on state power (even if it also increases danger of rent-seeking). I don't think these passages suggest that Weber 'idealized capitalist relations to a certain extent' (a partial concession Bellamy makes to a criticism by Marcuse) because Weber's analysis relies on a kind of 'least bad' style argument.
Thus, Weber grasps -- and again this makes his analysis all the more salient today -- that relatively unchallenged and unaccountable rule by technically sophisticated administrators can itself be a species of despotism (which anticipates, again, the Hayekian attack on Saint Simonism as much as it does Graeber & Wengrow). And part of the despotic nature of pure rule by the technically sophisticated bureaucrat is that she does so in the name of, and drawing on, rationality. And it is incredibly difficult to oppose reason without looking and becoming irrational. (This is all the worse if the reason the bureaucrat is instantiating understands itself as ethical.) Again, this is all quite prescient.
Interestingly enough, Weber does not slide into conservatism (away from liberalism) and the valorization of elite rule (familiar from Burnham and his followers), but rather -- as Bellamy emphasizes --, into thinking about the ways in which institutions and procedures can redistribute power and to allow for at least a "plurality of competing values in society" (Bellamy 1992: 216). That is, such plurality of competing values is both an effect of the advanced division of labor and competing interests and, in turn, a means to check any ideal from becoming an oppressive ideology. Rather than, for example, promoting a marketplace of ideas as a means toward consensus/truth, the marketplace of ideas becomes another vehicle for permanent disagreement (anticipating Mouffe and Berlin to some degree) and a check on power that presents itself as truth. This is, of course, Foucault's great theme.*
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