For democracy to work, you need a non-partisan bureaucracy

Illustration: TBS

Bureaucracy has faced significant challenges in recent times, with moments of near collapse. The core principles of bureaucracy—order, fairness, and efficiency—are often compromised by unquestioning allegiance to authority and the pursuit of personal gain. To understand this issue, we must revisit the origins and purpose of bureaucracy.

At its core, bureaucracy is meant to facilitate governance and public service. It is a vital component of democracy, representing the rule of officialdom alongside the rule of the people. Together, these systems aim to ensure the welfare of citizens. However, when political dynamics shift—particularly when political manoeuvring takes precedence—the integrity of the entire system is compromised.

Origin of bureaucracy

Humanity transitioned from hunting and gathering to domestication as early as 13,500 years ago. In this new beginning of civilisation, surplus production started to be guarded. Eventually, society became complex, and the concept of bureaucracy emerged.

In the mid-18th century, in France, specific persons were assigned bureaus, meaning desks, to keep records of the produce, to maintain it, and to ensure its return to the rightful owners. Thus, bureaucracy, in its primary form, emerged as a necessary reality. Eventually, modern bureaucracy came into being, constituting a system that ensures order, fairness, and efficiency in governance.

The dangers of political interference

Political rule is not inherently problematic when democracy functions as it should. However, when democracy falters, it can lead to totalitarianism—a system of government that is centralised and dictatorial, requiring complete subservience to the state. In such a scenario, public administrators lose their neutrality, and a just civil service system collapses, becoming a mere instrument of a totalitarian regime.

Bureaucrats face significant burdens and unethical pressures from political personalities inside and outside the government, such as members of parliament and postholders in political parties. In the process, they may become involved in collusion or face situations where they willingly or unwillingly compromise their integrity. This unhealthy dynamic may foster a culture in which bureaucrats seek personal benefits, further eroding the system's credibility.

The erosion of bureaucratic neutrality has dire consequences. When the areas of jurisdiction are violated, it leads to the proliferation of mismanagement, corruption, and inefficiency. Development becomes skewed, and the welfare of the people is compromised.

Key foundational pillars of bureaucracy

True bureaucracy rests on four major foundational pillars that collectively ensure its functionality and integrity.

The first pillar of bureaucracy is the existence of a dedicated body of officials responsible for administration and governance. This body, often referred to as the officialdom, plays a crucial role in ensuring structured and effective public service.

The second pillar constitutes knowledge regarding systematic rules, laws, and regulations. Bureaucrats must be well-versed in the governing laws, which should complement their mission of public service rather than act as barriers to effective governance. A thorough understanding of these regulations aids in the efficient and ethical delivery of services.

The third pillar is hierarchy. A defining characteristic of bureaucracy, it establishes the senior-junior relationships within the bureaucratic structure. This hierarchy ensures a streamlined chain of command and decision-making. Respect for roles and ranks promotes discipline, accountability, and efficiency.

The fourth pillar represents professionalism through impersonal relationships among the members of the bureaucracy. Bureaucracy thrives on impartiality, which means decisions and actions must be free from personal biases or relationships. This professional distance ensures fairness and equity in service delivery and fosters public trust in the system.

The need for bureaucratic neutrality

Democracy and bureaucracy must maintain their respective jurisdictions while ensuring a complementary working environment. Bureaucrats are not politicians; they are selected based on knowledge and expertise, while politicians are chosen by the electorate.

Ministers and political leaders must recognise that they cannot impose their will on bureaucrats. Violating this principle creates a culture in which bureaucrats may begin to seek personal benefits or engage in unethical practices, compromising the integrity of the entire system. Bureaucrats should be professionally empowered to safeguard themselves against politicisation and unethical provocations.

The path towards strengthening the bureaucracy

To restore bureaucracy to its true form, several measures must be taken without delay. It is essential to establish bureaucratic neutrality and strengthen the foundational pillars of bureaucracy.

The bureaucracy should follow a system of promotion and posting based on merit and performance. Practices such as politically motivated promotions undermine morale and lead to inefficiencies. They disrupt the integrity of the system and place unqualified individuals in leadership roles.

The focus should be on ensuring that bureaucrats can perform efficiently according to established policies, with monitoring mechanisms in place to assess their effectiveness.

Civil service training needs to be updated. Foundational and other basic training programmes exist, but there is little effort to update the cognitive processes of bureaucrats. Most civil servants operate from desks without proactive measures to enhance their knowledge trajectory. This lack of updated knowledge, particularly on government rules and regulations, leads to inefficiencies such as red tape.

Civil servants must remain committed to the nation's development while maintaining mutual respect and avoiding personal biases. Moreover, they should consistently nurture an empathetic mindset towards citizens to serve them effectively and to the best of their abilities.

In the end, democracy and bureaucracy are inseparable. Without bureaucracy, democracy cannot function effectively, and vice versa. A strong bureaucracy not only supports democracy but also ensures its resilience.

As we stand at the crossroads of political change and societal expectations, we must advocate for a bureaucracy that fiercely stands on its foundational pillars and serves as a beacon of integrity and fairness. Let us strive to restore the dignity of bureaucracy, for in doing so, we safeguard the very foundations of our democratic society.

Sketch: TBS

Dr Sultan Ahmed is the associate director at the Bangladesh Institute of Governance and Management (BIGM), former secretary of the Power Division, former chairman of Rajdhani Unnayan Kartripakkha (RAJUK), and former director-general of the Department of Environment.

Tasfia Tasneem Ahmed is an assistant professor at the Bangladesh Institute of Governance and Management (BIGM). 

Disclaimer: The views and opinions expressed in this article are those of the authors and do not necessarily reflect the opinions and views of The Business Standard.