An analysis of a University branch of the Norwegian Union of State Employees, where the author was shop steward for three years, shows that formal attempts to practice democracy may be futile. Local unions boards become overloaded with bureaucratic tasks, and the members passive and alienated. Supported by a silent majority, the leaders can rule without giving the impression of being an oligarchy. This transforma tion of democracy into hearocracy is attributed to the combination of administrative and political functions in large unions. It concludes that union democracy would benefit from a clearer distinction between these two areas.
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