Thus, with respect to the relations

Thus, with respect to the relations between officials and clientele, one structural source of conflict is the pressure for formal and impersonal treatment when individual, personalized consideration is desired by the client. The conflict may be viewed, then, as deriving from the introduction of inappropriate attitudes and relationships. Conflict within the bureaucratic structure arises from the converse situation, namely, when personalized relationships are substituted for the structurally required impersonal relationships. This type of conflict may be characterized as follows.

The bureaucracy, as we have seen is organized as a secondary, formal group. The normal responses involved in this organized network of social expectations are supported by affective attitudes of members of the group. Since the group is oriented toward secondary norms of impersonality, any failure to conform to these norms will arouse antagonism from those who have identified themselves with the legitimacy of these rules. Hence, the substitution of personal for impersonal treatment within the structure is met with widespread disapproval and is characterized by such epithets as graft, favoritism, nepotism, apple-polishing, etc. These epithets are clearly manifestations of injured sentiments.