Introduction: Hierarchy in Public Administration

Hierarchy is composed of the Greek like an article of faith in a religious creed. Hierarchy is a symbol of belief in a mythic form of administrative organization. The words hieros (Sacred) and archein (rule or order) originally referred to an order of angels, and the term came to signify an order of clergy like an article of faith in a religious creed.

Hierarchy is a symbol of belief in a mythic form of administrative organization. So, it derives from the Greek term for the ruling structure of religious organizations. In modern societies, hierarchical organizations have pervaded all aspects of life. Classical organization theorists emphasized the hierarchy as the central feature of organization. Hierarchy is a basic structural feature of Organisation in Max Weber’s bureaucratic model.

There are two views about the concept of hierarchy:

The conventional view, epitomized by Max Weber’s analysis of modern bureaucracy, highlights legal-rational authority in formal organisations. This view holds that a hierarchical organisation is bound together in a chain of command. Authority is gradually transferred from top to bottom. The relationship between units at different levels is that of superior and subordination, and each unit is accountable to one superior at the next level.

Hierarchical organisation is based on the division of labour. Each unit is functionally differentiated and specialized in performing specific functions assigned to them. These units are also entrusted with requisite authority and sanctions. Rules and regulations are impersonal and objective and decide the roles, behaviour and relationships among the members of organisations. It, however, also implies inequality in the power structure, is not conducive to teamwork, and creates artificial relationships among the members of an organisation.

The second view, known as the instrumentalist view, is held by Herbert Simon, who provided the notion of hierarchy in his analysis of complex systems. Simon believed that instead of defining hierarchy in terms of authority relationships, it needs to be seen by its role to reduce the complexity of organisations and make the arrangement or division of organisational units or sub-units in such a way as to achieve the organisational objectives best. This view is based on the voluntaristic view of authority. According to this view, authority is not imposed; rather, it is based on mutual consent. But it has also created problems like those arising from delegation of decision-making authority and span of control, which affect the overall organisational management.

Meaning of Hierarchy in Public Administration:

Literally, hierarchy means the rule or control of the higher over the lower. Concretely, hierarchy means a graded organization of successive steps or levels in which each of the lower levels is immediately subordinate to the next higher one and, through it, to the other higher steps right up to the top.

Oxford English dictionary defines hierarchy as “a body of person or things ranked in grades, orders or classes, one above another”.

In the words of L.D.White, “Hierarchy consists in the universal application of superior-subordinate relationships through several levels of responsibility reaching from top to bottom of the structure”.

Paul H. Appleby defined hierarchy thus: “it is the means by which resources are apportioned, Personnel selected and assigned, operations activated, reviewed and modified”.

According to Weber, “the organization of offices follows the principle of hierarchy, that is, each lower office is under the control and supervision of higher one”.

J.D. Millet defined hierarchy as a method whereby the efforts of different individuals are geared together.

Hierarchy creates a pyramidal structure, which Mooney and Reiley call the “Scalar Process”. In the words of Mooney, scale means a series of steps, something graded. Thus, it creates a ladder-like structure of organization. This principle is strictly followed in organizations where discipline is a primary requirement, like the police and army. The hierarchy of police administration in the state is shown below:

In an organization, it means grading duties not according to functions but according to the degree of authority and corresponding responsibility. Hierarchy usually develops out of qualitative changes in the nature of work whereby at each higher level, the nature of work becomes different and demands a higher order of supervision.

The following diagram may illustrate the structure and functioning of hierarchical organization:

In the diagram shown above, A is the head of the organization and is expected to exercise control and supervision over the entire organization, but he cannot do it himself. Therefore, intermediate levels are created by delegating authority to achieve this purpose. B is A’s immediate subordinate. C is B’s immediate subordinate but is also immediately subordinate to A through B. D is immediately subordinate to C but mediately also to B and A. In the same way, E is immediately subordinate to D but mediates subordination through D to C and B to A.

Finally, F is immediately under E, but mediately also under D, C, B and A. The same applies to the letter shown along the other arm of the angle. If A issues an order to F, it must descend to F through all levels, i.e. B, C, D and E, to finally reach F. If F addresses a communication to A, it will pass through all the channels of EDCB to ascend to A. Similarly, if F has to communicate some proposal to K, it must travel up to A through EDCB and then descend from A to K through G, H, I and J. F, A, K represent the line of authority linking the whole organization together.

Features of Hierarchy in Public Administration:

1. It functions on the principle of “Through Proper Channel”. Every proposal or paper has to pass through all channels. No intermediate level in the hierarchy is skipped over in transacting and transcending official business either upward or downward.
2. Unity of command is an essential feature of hierarchical organization.
3. Authority is distributed at various levels in an organization.
4. The superior has the right to issue orders, commands, and instructions, and the subordinate has obligations to carry out the same. They put suggestions, requests and permission regarding work or programmes.
5. Hierarchical organization is broader at the base and goes on tapering towards the top.
6. The authority vested in an official at every level should be commensurate with his responsibility.
7. Status, authority, salary and other privileges increase at successive higher levels.

Merits/Advantages of Hierarchy in Public Administration

1. This Principle keeps the various units of organization integrated or linked together. It clarifies the unity of purpose and fixes the responsibility of multiple units for the work assigned.
2. It makes the process of communication accessible. Everyone in the organization knows where the order and instructions will come from and who will report to whom.
3. It distributes authority and responsibility at various levels. Consequently, various decision-making centres are created. It makes the process of delegations of authority easier.
4. There is a division of labour among the various units of the organization, which brings specialization among the members of an organization and increases the organisation’s efficiency.
5. It helps to clarify each post’s relative position and responsibility in the organization.
6. In a hierarchical organization, policy matters are decided at a higher level. The middle levels exercise control and supervision over lower levels to ensure that they function to achieve the desired purpose, and lower levels perform the operational work.
7. This Principle specifies the authority and responsibility. Consequently, there is no conflict of jurisdiction among the members of an organization.
8. In a hierarchical organization, every communication takes place through the proper channel. It keeps the members of the organization informed and saves time.
9. The hierarchy facilitates the detailed examination of papers and helps the chief executive through filtering and funnelling. Only the essential information reaches the higher level while the non-essential and unnecessary remain at lower levels. It saves the Chief Executive time.
10. Hierarchy enforces discipline in an organization. Officials are duty-bound to follow the orders and directives of their immediate boss. It keeps the organization disciplined.
11. It is a built-in device to achieve consensus in an organisation.
12. This principle helps to fix the duties and responsibilities of each official at different levels of an organization.

Demerits/Disadvantages of Hierarchy in Public Administration

1. The Principal defect in the hierarchical organization is that it causes considerable delay in the disposal of work. A file, proposal or communication has to pass through all the channels. This process may cause delays of days, weeks or even months.
2. It promotes superior-subordinate relationships among the members of an organization, which is neither conducive to teamwork nor the development of dynamic human relationships among its members.
3. Confirm that rigid procedures and formalities involve red tape.
4. It promotes corruption as it involves a delay in the disposal of work.
5. It discourages the initiative and participation of lower participants in the organization. They have to follow and carry out orders & instructions from their superior in a mechanical manner.
6. It tends to make the organization “Tall”; consequently, the top men lose touch with the bottom.
7. Specialization and formalization of roles in hierarchical organisations can ensure stability and predictability of the behaviour of their members, but it can also hinder flexible and adaptive governance.
8. Hierarchical organisations are controlled and organized in a top-down manner; they may be indifferent to the diverse interests of their stakeholders and against the spirit of participative governance.
9. The perceived ineptness and inherent weaknesses in responding to different demands and pressure may erode its legitimacy as an effective governing mechanism.

Therefore, there are inherent dangers of conformity to hierarchy. Fayol has suggested a bridge across a formal line of authority in the hierarchy to overcome these defects so that subordinate officers in one department, division or section may directly contact their counterparts in another department or section. This he termed as Gangplank. Thus, the delay caused can be avoided without violating the essential principle of hierarchy.

Such a bridge is shown in the diagram by the dotted line between F and K. The only condition to recourse to Gangplank is to get authorization from their immediate supervisors (in diagrams E and J) and keep them well informed of what transpired between them. The system works perfectly well so long as officers making such contact agree with their counterparts and enjoy the confidence of their superiors.

The other device to overcome red tape is level jumping, which involves bypassing one or more intermediate steps in the vertical line of authority to establish direct contact between officers. The officers who skipped over may be informed of the action proposed or taken. In this respect, it is worth mentioning that the government of India has started a file-jumping experiment so that files reach the decision-making authority directly.

So, with proper confidence and loyalty between superiors and subordinates, the scalar organisation delay can be greatly reduced, if not altogether eliminated, in modern times (paragraph enclosed). Doubts have been raised about the efficacy of hierarchical principles in responding to diverse challenges and problems in contemporary public administration scenarios.6 Its features, like centralization of authority, rigidity and formalization of roles, are unsuitable for team building and participative governance.

Measures have been taken to respond to these concerns and challenges. The first attempt in this direction is to restructure authority by reducing the number of hierarchical levels. The second measure is a market-based solution; the government privatises public services and outsources its operations and activities to other agencies. Thirdly, some organisations have tried and experimented with new modes of governance, like networks, partnerships, projects, etc., to replace hierarchical organisations. The current concern in discipline is changing authority structure, enhancing capability, and ensuring accountability by making public organisations more participative.

Hierarchy occupies a central theme in the discussion on organisational structure. Classical theorist emphasized the significance of hierarchy in their writings on organization theory. This principle helps to fix the duties, authority and responsibilities of officials at different levels of an organization. However, it has also been criticised due to red-tapism and delays in the transaction of officials’ business. Organizations try newer modes of governance by replacing hierarchical systems to ensure participative governance, team building, and better human relations.