Critical Review of Bureaucracy

¶ … Internship Tasks

Main task during the internship was articles about Dow Water & Process Solutions (DW&PS). The aim was to illustrate the processes going in water treatment plants and to explain the importance of wastewater reuse. Also, I helped preparing a few press releases that informed about new technologies or projects DW&PS is involved in. Such was the DEMOWARE press release, which I found very interesting and decided to look into it beyond the tasks that are normally involved in the work.

The internship in context to the study of Sociology

Analyzing legal policies might be vital for finding solutions for improving the overall image of a client or the functionality of its products. By promoting DW&PS, we talk about the solutions their products bring for issues that the general public may not be well aware of and like that it is aimed to raise awareness in the society, which will result in discussions. It is important that such topic takes central place in political debates, as it is the politicians that will allocate public funds for water treatment projects. As a global leader in the field, more projects mean more opportunities for sales of DW&PS products. At the same time, it needs to be established that DW&PS is going about things the right way and that they are not contributing to any bad governmental or bureaucratic habits as part of their efforts, whether it be intentionally or unwittingly.

Here in hand comes Sociology of Law, which has been seen as discipline treating law and justice as fundamental institutions of the basic structure of society mediating between political and economic interests; and culture and the normative order of society, establishing and maintaining interdependence, constituting themselves as sources of consensus, coercion and social control.[footnoteRef:1] With that in mind and the collection of such data it is very useful for recognizing problems and analysing the issues that come with them. It is also a good way to identify key trends among people and the society, therefore very related to the study of sociology. Trends of all sorts should be looked out for, whether they be positive or negative. Only a complete and honest review of performance metrics can reveal just how well (or poorly) any given sociological or similar effort is performing. [1: Banakar, R., Travers, M., 'Theory and Method in Socio-legal Research', 2005.]

This relation between work and studies is also evident in the scope of the projects that DW&PS is involved in. Such is the DEMOWARE[footnoteRef:2] initiative, which is a greenfield project, managed by the European Commission as part of the EU's long-term goals for sustainable environment and water use within the Union shaped in the Horizon 2020 framework programme[footnoteRef:3]. DEMOWARE is a result of the concerns related to climate change and the public pressure for solutions of environmental issues throughout Europe, an example how the society shapes regulations and legal policies through the EU Commission. With that being said, it would not be fair to say that climate change science or the motives of the climate change scientists and their governmental supports have entirely clear and defined motives. Some suggest that there are legitimate climate concerns and this is almost certainly true. At the same time, there have been instances where constructive debate and dialog has been scuttled and that is not a good thing regardless of where scientific facts truly lie. The climate, just like sociology and economics, are extremely complex and it is perhaps less than wise to draw wide-ranging conclusions based on incomplete and/or mixed evidence. DW&PS participates in the project with innovative technologies for water treatment and mainly the reuse of wastewater. As part of DEMOWARE is demo site 5 near Tarragona, which is already functioning and giving good results, saving huge amounts of water from the Ebro river and purifying wastewater which was previously disposed in the Mediterranean sea. [2: DEMOWARE, accessed 30 October 2015, http://demoware.eu/en.] [3: Horizon 2020, accessed 30 October 2015, http://bit.ly/1GVxGrf.]

1.2. Research Problem

For DEMOWARE the EU budget contribution is vital and the EU Commission describes the initiative as follows: 'DEMOWARE (Innovation Demonstration for a Competitive and Innovative European Water Reuse Sector): The ability of Europe's communities to respond to increasing water stress by taking advantage of water reuse opportunities is restricted by low public confidence in solutions, inconsistent approaches to evaluating costs and benefits of reuse schemes, and poor coordination of the professionals and organisations who design, implement and manage them. The DEMOWARE initiative will rectify these shortcomings by executing a highly collaborative programme of demonstration and exploitation, using nine existing and one greenfield site to stimulate innovation and improve cohesion within the evolving European water reuse sector.'[footnoteRef:4] [4: http://europa.eu/rapid/press-release_MEMO-14-34_en.htm ]

The above introduction is necessary to illustrate the complex structure required in order to save vital resources such as water. It also shows the engagement of the EU in environmental projects, paving the way for sustainable developments and making it clear that nature is important for the future of Europe.

With the above said there is no doubt that the EU has good intentions and is in support of projects preserving the environment, but the issue here is the time necessary for such projects to be materialized. DEMOWARE was launched in the beginning of 2015 and is the result of more than eight years of discussions that started in 2007, finalized with the agreement of Horizon 2020 in 2014.[footnoteRef:5] [5: Horizon 2020, accessed 30 October 2015, http://bit.ly/1qzPFXh.]

Throughout that time the funds allocated for Horizon 2020 from the EU budget were available. There were some clarifications that might have slowed down DEMOWARE for certain period of time, but the main obstacle and the reason for the 8 years of waiting were the bureaucratic procedures that the EU has.[footnoteRef:6] [6: Tecno Aqua, accessed 16 January 2016, http://bit.ly/1llJSY4. ]

1.2.1. Problem Case - Bureaucracy

It is important to clarify that I do not view bureaucracy as something negative, like many supporters of "Brexit" would argue EU bureaucracy is.[footnoteRef:7] I believe that it is indeed bureaucracy that helped the Western societies to develop rapidly and in a positive way. At the same time, bureaucracy admits effects manifest in different ways and to different degrees. If bureaucracy manifests in the form of response times and performance metrics that are elongated and unnecessarily complex, then one could theoretically view bureaucracy as negative. However, I just hold (as do many other authors) that a bureaucratic framework and the proper amount of due diligence is important so that the proper things are addressed and nothing important is missed. The work of sociologists like Max Weber considered bureaucracy as the most important feature of modern society. Weber viewed it as a method of organisation based on specialisation of duties, action according to rules and a stable order of authority.[footnoteRef:8] In the last century the bureaucratic societies are the prosperous compared with the rest of the world, but now it might be the time that requires a more efficient process for making decisions. Here, I am not referring to simplifying things, as I believe in what Jacques Derrida argues that difficulty educates and that the simplicity in many cases brings a false clarity.[footnoteRef:9] I intend to argue that maybe it is time to go step further and to make bureaucracy efficient again, answering the needs of the modern reality in a competing capitalist world.[footnoteRef:10] Indeed, the proper balance should be struck between keeping things simple and streamlined while at the same time making sure that things are not zipped through a bureaucratic framework with too much ease and speed. This can lead to missing important things, questions about favoritism and so forth. As with all things, there can be situations where excess and waste is rampant but there can also be situations where there is not nearly enough attention to detail. The point is that bureaucracy is not inherently bad or evil even with the rhetoric that some assign to it. [7: The Independent, accessed 29 October 2015, http://ind.pn/1kcQyYi.] [8: Deflem, M., Sociology of Law, Vision of a Scholarly Traditions, 2008, Cambridge Uni Press, p. 38.] [9: Ben Agger, 'Critical Theory, Poststructrualism, Postmodernism: Their Sociological Relevance.'] [10: The Telegraph, accessed 30 October 2015, http://bit.ly/1Za7D5z.]

1.2.2. Research question

Climate change is an issue worldwide and the EU has a great opportunity to set an example to the rest of the world how to tackle it. As it is clear that environmental projects could be launched faster for better effect, it is necessary to understand why bureaucratic procedures are slowing down passing such projects in the EU Commission. That is why I have focused the Independent Study in the following Research Question:

Who benefits from the delay of DEMOWARE and what bureaucratic procedures the EU Commission could have relaxed for funding the initiative?

2. Theoretical Approach

2.1. Theory of Choice

The theoretical approach intended is Critical Theory, as it is both political and epistemological in intent and therefore very suitable for the independent study. Critical theory aims to move beyond the obvious in order to uncover the effects of political structures and their associated power relations.[footnoteRef:11] As partially noted elsewhere in this report, political ideology and alliances can be good things but they can also be used to push ideas that are simply more favored in terms of coalescing power and influence. In the end, it is only right and proper to truly evaluate the economic, sociological and climate-based realities of a situation and let the proverbial chips fall where they may. [11: Weiss, C., 'Evaluation Methods for studying programs and policies', 1998, Prentice-Hall, p. 58.]

Critical theory gives the opportunity to seek knowledge via interpretation and in that way to understand the meaning of human texts and symbolic expressions as well as the interpretation of texts which themselves interpret other texts.

The epistemological aspect of the theory is important, as epistemology is knowledge related and therefore suits the aimed qualitative approach. The bipolar element of the theory involving the political aspect, allows the examining and establishing the limits of the validity of a faculty type, or body of knowledge, especially through accounting for the limitations imposed by the fundamental, irreducible concepts in use in that knowledge system.

The environmental concerns in Europe are very relevant and are main part of political discussions, which is proven to a great extent by the current summit in Paris. The EU Commission is determined to seek for global solutions to the environmental concerns and to tackle them through directives.[footnoteRef:12] [12: The Irish Times, accessed 23 November 2015, http://bit.ly/1LzDBxw.]

2.2. Application of Theory

The issues concerning the environment in the EU are very relevant and are main part of political discussions. The decisions at the recent Paris climate summit prove to a great extent the validity of the RQ. Many EU leaders now insists on regulation amendments in the EU, which will allow MS to take measures and under the EU frameworks to deal with climate change issues in an adequate way depending to the various concerns in all corners of the Union.[footnoteRef:13] [13: The Guardian, accessed 18 December 2015, http://bit.ly/1TyQjCr.]

It is important to note that even though the EU wants to improve legislation and to have more efficient measures, it is just a small change in the bigger picture. The main aim of the EU at such events is to create a dialog with leaders from around the world, so they can come with a united solution. Still, under its own capacities, the EU is able to set the much-needed example that the World's biggest economic market is willing to sacrifice funds and growth in order to attempt to tackle climate change. Despite the results of such measures are more or less intangible, especially in short-term, it is clear that actions are necessary. For that reason the results allow interpretation and that is why I believe that Critical theory is likely the most suitable theoretical approach.

3. Methodology

The evaluation model is a formative model, which focuses upon improving implementation and processes.[footnoteRef:14] Based on the aims of the research, which is guided by program-derived questions,[footnoteRef:15] the study follows a qualitative approach whereas the EU's effectiveness serves as the specific approach. It will help to analyse the effectiveness of the local authorities as well as the EU Commission's procedures. The determination of the success of an organisation is a crucial element of organisational assessment which is clearly suitable for this specific study, as this approach investigates certain questions in relation to the Commission effectiveness such as have the established goals been met. [14: Weiss, Carol H. (1998). Evaluation: methods for studying programs and policies. 2., [rev.] ed. Upper Saddle River, N.J.: Prentice Hall] [15: Program-Derived Questions - The questions that evaluation considers derive from the concerns of the policy and program communities - that is, the array of people involved with, or affected by, the program. Definition in Weiss, Carol H. (1998). Evaluation: methods for studying programs and policies. 2., [rev.] ed. Upper Saddle River, N.J.: Prentice Hall, p 16]

3.1. Data collection method

Qualitative data collection methods can be used in a wide range of studies, however, a qualitative programme evaluation starts with collecting data by coding texts and interviews, i.e. narratives, direct and indirect observations, semi-structured interviews, stakeholder interactions, documentary evidence, resulting in understanding the programme.[footnoteRef:16] [16: Bryman, Alan. 'Social Research Methods.' 4th. Oxford: Oxford University Press, Print. 2012.]

Thereof, in order to achieve the aim of this study, the data collection methods will be based upon qualitative semi-structured interviews as well as examination of texts part of comprehensive literature review. The information set for this study will be a nexus of those semi-structured interviews and a wide array of qualitative literature that meets the required applicability and scholarly standards. Indeed, the interviews will need to be of people that are directly involved with and integrated with the government and/or bureaucratic processes and mechanisms mentioned in this report. As for the qualitative sources, they truly need to be applicable and assignable to what is being assessed in this study so that the validity of any conclusions drawn as a result are truly accurate and arguable if and when they are subjected to peer review, scrutiny and criticism. For example, the author's assertion that bucreacy is a good thing when done well would have to be supported by the literature and when it comes to the government programs and mechanisms covered in this study in particular. and Multiple qualitative sources provide understanding of complex phenomena and the narrative reports are more accessible to non-specialists for better analysis.[footnoteRef:17] The semi-structured interviews help to examine the broader context of the programme and will serve as supplement in order for extended knowledge of the role of the EU Commission in DEMOWARE as well as investigate the individual(s) thoughts in relation to the RQ.[footnoteRef:18] In that case an interview with both the local authorities or EU Commission representatives and the DW&PS spokespeople would be the intended number for data collection. [17: Holland, Janet (2013), 'What is Qualitative Interviewing?'.] [18: Margaret, Harrell (2009), 'Data collection methods: semi-structured interviews and focus'.]

3.2. Research Approach

As the method of collecting data involves structured and semi-structured interviews the research strategy for the interviews is a combination of deductive and inductive approach. Both approaches are suitable for qualitative research, even though deductive approach is more commonly associated with quantitative research.[footnoteRef:19] Still, for the purpose of this study, it will be the predominant approach, as it starts from the theory and seeks confirmation, whereas the inductive approach is emerging from the data. Nonetheless, it is important aspect of the research approach, as it allows the research to have an open end resulting in the adoption of new theories and giving the theme place to develop.[footnoteRef:20] This was the case in that study, as despite conducting a comprehensive research of the primary material, their critical analysis was not sufficient and left the questions for the interviews with open end. [19: Popper, Karl; Miller, David (1983), 'A proof of the impossibility of inductive probability'.] [20: Bryman, Alan. 'Social Research Methods.' 4th. Oxford: Oxford University Press, Print. 2012.]

3.3. Ethics

There are several ethical issues that exist using such methodology. When conducting interviews, interviewees should be made aware how their responds will be used. In that case the first issue in interviews is the one of privacy and confidentiality, as if I am allowed to quote the answers of the respondents.[footnoteRef:21] [21: Kvale, Steinar. 'InterViews: learning the craft of qualitative research interviewing', 2009.]

As second ethical issue is the problem with informed consent, issues of power and politics arise a well. Furthermore, interviewees that participate in job-related researches, there is the issue with confidential information that the respondent might give. This is considered a very serious accusation in some business fields and their employment may be affected even in cases where their identities are kept confidential.[footnoteRef:22] [22: Ibid.]

Therefore, here I declare that I was aware of the above ethical issues when conducting the interviews for the purpose of my independent study. I made it clear to both interviewees the reasons for the interviews and I had their full consent to mention their names, employment and to quote parts of their answers, which I find suitable for the study.

3.4. Interpretation of documents and validity

This section will serve as a justification of the interpretation process and to assure the reader of the validity and reliability of the research. The intent of this study is to understand a particular social situation which involves an investigate process where the researcher gradually makes sense of a social phenomenon (the European Commission) by contrasting, comparing and classifying the object of study. Therefore, the researchers of this evaluation will enter the participants' world and through ongoing interaction, such as semi-structured interviews analyse the participants' perspectives and meanings.

The primary material to contrast the argumentation from the semi-structured interviews and EU regulations will be press releases by the European Commission and articles. In order to assess what is a relevant press release, the researcher must obtain an understanding of the text and relate it to the context of the current issue. The information shown in the text of the press release is rarely completely exhaustive and it needs to be supplemented with preparatory work, jurisprudence, and doctrines.[footnoteRef:23] Peter Seipel, Professor of Legal Informatics at the University of Stockholm, emphasizes the importance of a good use of language when writing research with social orientation. This is because in order to avoid misunderstandings, there is a requirement of precision associated with the inscription to be read.[footnoteRef:24] [23: Leijonhufvud, Madeleine "Forfattningstexter" in Bernitz, Ulf (ed) Finna ratt, Eleventh Ed., Stockholm: Nordstedts Juridik AB, 2010, pp 91.] [24: Seipel, Peter (2010) "Uppsatsarbete" in Bernitz, Ulf (ed) Finna ratt, Stockholm: Nordstedts Juridik AB, 2010, pp 251.]

Lastly, it is important to remember that any research that is based upon interpretation, puts emphasis on the researchers' ability to understand the chosen documents and its content, including the background knowledge regarding the subject as well as previous -- and present debates on the subject.[footnoteRef:25] By embracing this knowledge, the analysis of this research retain a high degree of validity and reliability through the whole working process. [25: Bryman, Alan. Social Research Methods. 4th. Oxford: Oxford University Press, Print; 2012, 649.]

While preparing for the final part of the internship, I started with a research, which included comprehensive analysis of texts and observation of events that greatly helped for forming questions and setting themes of the interviews. Main focus were the articles from top tier media in the UK, Spain, Germany and Italy (BBC, Spiegel, The Guardian, Cinco Dias, etc.). I tried to find information from the last 5 years and gather relevant news concerning the project, including such in the official press releases from that period. This gave me a better understanding about the development of the project throughout the time and to see the public image it has. It was important to understand that the concerns about the Ebro river were raising with the time and so was the interest in the DEMOWARE project. Many view Horizon 2020 as a solution to environmental issues and are looking forward to see the outcomes of the projects.

Still, that first part of the research did not give the answers to the RQ as the topic about bureaucracy was more focus about the amount of money allocated for the initiative rather than the time it took the EU Commission to sign and give it a green light. Surely, in the research I did not find specific criticism of the bureaucratic procedures in forming DEMOWARE, which left the RQ with an open end for the interviews in the second part of the research.

For that second part in answering the RQ, I prepared several questions in order to conduct a semi-structured interview with two representatives from the Dow Company. They were both from the European department of Dow Water & Process Solutions and were well informed about the DEMOWARE project. Ideally, I would have had an interview with at least one representative of either the local authorities or someone responsible directly for DEMOWARE, but unfortunately I did not manage to find the right contacts. Still, both the interviewees were very well informed about the initiative and this is important as it gives validity to their answers and makes the analysed data reliable.

4. Presentation of Results

The first interviewed person was Felix Albarran, the PR for the European market of DW&PS. He is part of the company for over twenty years and is very knowledgeable about the products and trends in the market. He works in close relation to the marketing people in DW&PS and knows in first-hand about issues concerning the projects of the company.

The second interview was with Oier Llinas, who joined the company in 2014 to deal exclusively with the DEMOWARE project within the DW&PS team.

As required I have agreed time and place (on the phone) that is suitable for both parties and asked for their permission to take notes in written form, so I can later quote their responds. They both agreed to be names in my study. [footnoteRef:26] [26: Kvale, Steinar. 'InterViews: learning the craft of qualitative research interviewing', 2009.]

4.1. Interviews

As I had limited time to start the independent study and prepare the interviews, less than a month most of which during the holiday season, when I asked for the interviews I had also prepared a few questions in a structured interview form, so they could answer them in case they did not have the time for live interview with me after the holidays. Fortunately, we managed to do that at time suitable for everyone and I did brief, but comprehensive semi-structured interviews over the phone.

4.2. Semi-structured interviews

Despite starting in an identical way, the interviews went in different directions, showing interesting views of two professionals that have the same objective -- to reuse as much wastewater as possible. This was important as it showed that both of them see DEMOWARE as an opportunity to develop a system that helps saving freshwater.