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Summary Topic red tape: Bozeman (1993), Brewer & Walker (2009), Feeney (2012), Kaufmann & Feeney (2014)
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Good governance summary topic red tape
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A theory of government “red tape”Bozeman (1993)
The purpose of this article is to develop a theory of the origins of red tape and then to apply the
theory to the question "Why do government organizations have more red tape?
The term "rule density" is introduced to describe the extensiveness of rules and regulations as
related to total organization resources. The theory makes a distinction between rules that are at
their origin dysfunctional (rule-inception red tape) and rules that initially served a useful function
but transformed into red tape (rule-evolved red tape). A distinction is made regarding the internal
vs. external production and impact of red tape and a typology is developed which is used in
hypotheses about red tape. The model implies that most factors leading to red tape are not an
inherent function of government. However, two inherent factors of government are cited, each of
which gives rise tape.
Red tape and white tape: the search for a useful conceptualization
Common elements of red tape: usually implies excessive or meaningless paperwork, a high
degree of formalization and constraint, unnecessary rules, procedures and regulations,
inefficiency, unjustifiable delays and as a result from all this, frustration and vexation.
Kaufman explains that red tape does not spring up because of the malevolence or incompetence
of bureaucrats but because of two compelling and interrelated reasons--to ensure that
government processes are representative and accountable and to meet the demands, often
fragmented, of citizens and interest groups. Part of the reason for red tape is the sheer
number of specialized demands for government action. But process protection also give rise
to red tape. Kaufman points out that much red tape could be avoided were we willing to reduce
the checks and safeguards now imposed on government employees. But he does not advocate
doing away with the extensive rule-based safeguards, noting that were we to do away with red
tape "we would be appalled by the resurgence of the evils and follies it currently prevents."
The empirical question then is Under what circumstances are extensive rules and procedures red
tape and under what circumstances are they actually "white tape"-providing benefits along with
the delays and frustrations?
Government ownership and red tape
Mixed results. Using delays as a partial measure of red tape, Bozeman and colleagues (1992)
found that government ownership is associated with red tape, and private organizations with
stronger ties to government (in terms of resource dependence and communications) exhibited
more red tape. The study suggests that it is not government ownership that is the chief causal
agent; it is the exercise of external political authority.
Toward a theory of red tape: concepts and assumptions
By the more restricted view taken here, red tape originates only in formal rules, regulations,
and procedures. The argument for this more restrictive definition is that it simply is not useful
to use the term "red tape" for every organizational malady; doing so dilutes the meaning of the
concept to such a degree that it would not warrant organization theorists' attention.
, Red tape as a bureaucratic pathology
In the first place, it is clearly consonant with popular usage. Citizens and organizational members
discussing red tape rarely assume that it is positive. Popular usage is not a sufficient criterion for
development of a scientific concept (e.g., Hall 1963), but flaunting popular usage at least
requires a good reason. One possible good reason, suggested by Kaufman's (1977) work is that
many procedures and controls that seem vexing actually serve legitimate and important social
and organizational purposes. That is a good reason to not view all procedures and controls, even
extensive ones, as red tape; it is not a good reason to view red tape as beneficial.
A second good reason to view red tape as negative is that there is already a set of organizational
concepts that deals adequately with certain empirical aspects of rules and procedures. The
extensive literature on formalization concerns itself with rules and procedures, without in most
instances assuming any negative implications or impacts of rules and procedures.
Another argument that might be advanced against a negative or pathological concept of red tape
relates to the social construction of reality. According to Waldo, "one man's red tape is another
man's system." Kaufman stated much the same view: "One man's red tape is another's treasured
procedural safeguard." This point, while certainly valid, is not a strong argument against red-
tape-as-pathology. Rather, it is a good reason to note that red tape is best viewed as subject
dependent and that rules and procedures have multiple impacts.
Bureaucratic physiology: formalization and other rules concepts
One major flaw in most concepts of red tape is that the concept is too encompassing. Some
authors make no distinction between formalization and red tape.
Formalization: "the extent to which rules, procedures, instructions and communications are
written (Pugh et al.). including the number factor brings us closer to red tape:
Rule sum: the total number of written rules, procedures, and regulations in force for an
organization.
Other factors needed: compliance requirement (total resources required formally to comply with
a rule), compliance burden (total resources actually expended in complying with a rule) and rule
density (total resources devoted by the organization to complying with all its rules, regulations,
and procedures as a percentage of total resources expended by the organization, and rule
incidence (the number and types of persons affected by a rule, regulation, or procedure). See
p.281
Bureaucratic Pathology: red tape concepts
Functional object (of a rule): the purpose of its creation, the problem it seeks to solve, the
opportunity it exploits.
Rule efficacy: the extend to which a given rule addresses effectively the functional object for
which it was designed.
Red tape defined: no redeeming social value
Organizational red tape: rules, regulations, and procedures that remain in force and entail a
compliance burden for the organization but have no efficacy for the rules’ functional object.
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