Bureaucratic Theory and Typology There are several theories that explain and at the same time become models in forming bureaucratic institutions in various countries. The following is presented bureaucratic theory from several authors. Setiyono (2004: 16-21), proposed four bureaucratic models as follows. 1. Rational Administrative Model This model was developed Max Weber. According to Weber, an ideal bureaucracy is one based on a rational system of rules and not based on paternalism of power and charisma. The bureaucracy must be rationally formed as a reliable, measurable, predictable and efficient social organization. 2. Power Block Model This model is based on the idea that bureaucracy is a tool to block the people in exercising power. The idea that bureaucracy is a means of containing popular power (represented by politicians) is closely related to the ideology of Marxism. Marx saw bureaucracy as a defensive mechanism and organ of the bourgeoisie to maintain power in capitalism. 3. Bureaucratic Oversupply Model This theory is based on the ideological thinking of liberalism. This theory essentially highlights the organizational capacity of the bureaucracy which is seen as too large, interferes too much in the affairs of the people and consumes too many resources. According to Niskanen (1971) and Downs (1967), a person who runs a bureaucracy (bureaucrat), regardless of being a public servant, is a person who has motivations related to career development and the fulfillment of personal needs. That is why, they tend to enlarge their institutions to facilitate work and responsibilities, increase budgets, and enlarge their authority as much as possible. Therefore, the bureaucracy is required to reduce its organizational capacity by reducing the number of state apparatuses and delegating authority to the private sector based on market mechanisms. At the extreme, this model aims to reduce bureaucracy to zero. Bureaucratic institutions are formed as small as possible and their task is sufficient as a catalyst and there is no need to intervene in any of the patterns of social relations that exist in society. 4. The New Public Service Model of Bureaucracy according to this model should be left to market mechanisms. According to this theory, bureaucracy has a different pattern from the private sector. Bureaucracies cannot be judged as good or bad solely because of their large organization, large members of society or their complex structure. Bureaucracy is not a question of whether it fulfills market mechanisms and large organizations, but on the question of whether it can provide the best service to the community. March and Simon (in Ndraha 2003: 518) examine four bureaucratic models, namely the Weber model, the Merton model, the Selznick model, and the Gouldner model. Weber's bureaucracy was centered on "consequences of bureaucratic organization for the achievement of bureaucratic goals, primaly the goals of a political authority". This bureaucratic organization is utilized to achieve bureaucratic goals, especially the goals of political authorities. Some of these bureaucratic consequences can be anticipated and some cannot be anticipated. Weber's bureaucracy was influenced by two forces, namely the characteristics of the bureaucracy itself and the human characteristics of officials of bureaucratic organizations. Bureaucracy in certain environments, for example in the military, is formed like a machine, which has control over the above two consequences. This bureaucracy can at one moment be conducive, and at another time it can be repressive. Merton's model originated from "a demand of control made on the organization by the top hierarchy" (Ndraha 2003: 515). All members of the organization are expected to be trusted. For this purpose, their behavior is regulated, so that every action can be accounted for. The Merton bureaucracy gave rise to desired or expected behavior. But in reality, unexpected behavior also arises, for example, the behavior of organizational members becomes rigid, rigid, and difficult to change. This is understandable, because in the bureaucracy there are strict controls and obligations for members to maintain the position of the organization. Behaviors that are rigid and difficult to respond to social change, in turn, can affect relationships with clients or consumers. While Merton's model emphasized regulation as a means of control, Selznick focused on delegation of authority. This delegation of authority gives rise to dualism of interests, namely the interests of the organization against the interests of subunits of the organization concerned.