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Bureaucracy is an organizational form consisting of differentiated knowledge and many different forms of expertise, with its rules and disciplines arranged not only hierarchically in regard to each other, but also in a parallel manner. If moving through one track, in theory, one need not know anything about how things were done in the other tracks. Whether the bureaucracy was a public or private sector organization would be largely immaterial. Private ownership might enable one to control the revenue stream, but day-to-day control would, however, be done through the intermediation of experts. And expertise is always fragmented. This enables the bureaucracy to be captured by expert administrators, however democratic its mandate might be, as Michels argued in his famous iron law of oligarchy.

Thus, at its core the iron law of oligarchy argument, simply stated, suggests that professional organization, even in highly democratic organizations, will always end up being controlled by a small elite group. The reasons for this are quite simple: Michels's argument explicitly identifies structures of communication in the production and reproduction of oligarchy: first, there is an inequality of knowledge (between leaders and led), which, together with the existence of differential control over the means of communication, means that the constraints of limited time, limited space, and the relative lack of organizational energy of the led, outflanked as they are by the superior resources of those who presently rule, together with the uneven distribution of communicative skill (the arts of politics), means that the odds are weighted against the inequality being overcome.

Conceptual Overview

Oligarchy is located at the core of organizational power; it is the means of monopolizing and perpetuating resources of power through perfectly legal and rational processes. Michels's basic reasoning was that organization precludes democracy, because of immanent oligarchical tendencies. According to Michels, political leadership is incompatible with democracy. Organization necessitates oligarchy. Simply, any kind of association becomes more-or-less rapidly a minority of directors dominating a majority of those directed.

Power struggles are evident as the core process of internal oligarchization and thus create a paradox of democracy. According to Michels, organization necessitates delegation and dispersion of authority. Even organizations that are democratic in conception, in the goals they promote as inclusive reasons for membership, will fail to be democratic in the procedures and rules they design and use; they may be democratic in the plurality of interests they objectively and institutionally represent, rather than in the causes they actually promote through their strategies. Consequently, even if organizational forms end up transforming democratic regimes into oligarchic regimes, this influence will be exercised concretely through power struggles. It is simply the underlying arguments and criteria, deciding who governs, which are likely to evolve.

Oligarchy derives from the political process of the “professionalization of leadership” more-or-less directly, because the interests of the experts in leadership are expressed in a struggle between leaders, who, in striving to compete to solidify their own personal positions, clash with those of the “masses.” Oligarchy stands diametrically opposed to democracy; thus, if we are to understand oligarchy we must understand debates about democracy in relation to organizations.

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