Post on 04-Jan-2016
THE BUREAUCRACYThe Fourth Branch?
Bureaucracy is … A large, complex administrative structure responsible for the
implementation of public policy ….. executing laws, providing for defense, administering social programs
Part of the Executive Branch NOT elected; impartial Developed through custom, tradition, precedent The roughly 500 departments, agencies, administrations,
authorities, and commissions that carry out responsibilities assigned to them through Congressional legislation.
People often complain about all the bureaucratic “red tape.”
Where did the phrase “red tape” originate?
Bureaucratic Structure
Weberian Model: hierarchical pattern – power from top down &
responsibility from bottom up Specialized tasks - experts Extensive rules – uniform treatment of public Structured merit promotions – impersonal and
apolitical Acquisitive Model
Views top-level bureaucrats as trying to expand the size of their budgets and staffs to gain greater power
Monopolistic Model Compares bureaucracies to monopolistic business
firms. The lack of competition in both leads to costly and inefficient operations.
Benefits of a Bureaucracy: More effective manner for large groups of
people to work together Authority already determined Job specialization promotes efficiency Established rules
and procedures Size:
Federal “getting smaller” BUT, fed. Gov’t is now employing a lot of
private contractors - About 1/3 in Defense Dept./armed forces (largest gov’t employer)
Most growth at state and local levels….but federal dollars setting them up
Actually more local bureaucrats than federal and state combined.
Getting aBureaucratic Job
Historically – through patronage (a/k/a “Spoils System”) Changed with Pendleton Act, 1883
Merit system/exams for civil service jobs – governs hiring, firing, and promotion
Hatch Act limitations on federal employees: Purpose –to prevent federal employees from engaging in
any form of political action; to better guarantee bureaucratic neutrality
CAN’T run for office, campaign, collect $ for a candidate CAN vote, express opinions, wear buttons, join a party
OPM – does hiring for most fed. gov’t jobs Each job has a GS rating
Salaries are keyed to rating and experience
WHY is it hard to get high caliber
bureaucrats? Government scandals create disillusionment Private sector pays better Government worker still has negative image
What is the PLUM BOOK? List of top fed. government jobs available for
direct Presidential appointment (Cabinet secretaries, bureau chiefs, etc.)
Elements of the Federal Bureaucracy:
Cabinet Departments 15 Secretaries +
Independent Executive Agencies GSA, NASA, CIA
Independent Regulatory Agencies “Alphabet Agencies” ICC, FDA, FCC, SEC, EPA, OSHA
Government Corporations Amtrak, USPS, PBS
Executive DepartmentsBureaucratic Structure
1st Congress created 3 in 1789: State, Treasury, War
Now have 15 departments that have been created by Congress
Department of State is oldest and most prestigious and also the smallest
Department of Defense is largest Also known as a “line organization”
meaning they report directly to the P
Homeland Security Newest Executive
Department Created in 2003 as a result
of 9-11 Coordinates antiterrorist
activities in the country INS now a part of it Ps can ask for a new dept.
or that one be abolished …. but only Congress can do it
Role of the Secretaries: Each department is
headed by a Secretary except Dept. of
Justice – Attorney General
Serve as members of the P’s Cabinet
Have deputy secretaries or “under secretaries” for assistance
The Cabinet: Custom started by Washington Heads of the 15 Executive
Departments PLUS others at P’s discretion
Department heads are appointed by P and must be confirmed by Senate
1st woman put in Cabinet by FDR, 1st black by Lyndon Johnson
Role ofCabinet:
Advisors to P Strength of their role in P decision-making
depends on the President: Large Role – George W. Bush, Clinton,
Eisenhower Small Role:
Jackson – Kitchen Cabinet JFK – “Waste of Time;” relied on Bobby
instead
Are bureaucratic organizations that are NOT located within a department but report directly to the President
CIA – Central Intelligence Agency Smithsonian Museum NASA – space exploration GSA – Handles government purchasing
Independent Executive Agencies
Independent Regulatory Agencies
An agency OUTSIDE the major executive branch depts. Charged with making and implementing rules and regs
INDEPENDENT of all 3 branches of gov’t in theory
But members of commissions/boards are appointed by P, confirmed by Senate
And funding comes from Congress Examples: ICC (oldest), FTC, FCC, FDA,
SEC, OSHA
Independent Regulatory Agencies Experts in their areas – such as environment,
economy, industry… Assist Congress with their expertise
Quasi-legislative – fill in the technical details for legislation Quasi-judicial – responsible for rule enforcement &
punishment of violators Theory now that these agencies have been captured
by the very industries and firms they’re supposed to regulate
Results in LESS rather than MORE competition, HIGHER rather than LOWER prices, and LESS choice rather than MORE choice for the consumer
GOVERNMENT CORPORATIONS An agency of government that administers a quasi-business
enterprise. They are used when the activity involved is primarily
commercial. A cross between a private business corp. and a gov’t agency
Supposed to produce enough revenue to support themselves
Have Board of Directors & Chairman
…but no shareholders; don’t pay taxes. Examples:
Amtrak –has never made a profit Post Office – also in the “red”
White House Office: Nerve center of the Executive Branch Located in West Wing Houses the President’s key personal and
political staff (600) Chief of Staff – Top Aide,
assistant to P & manages EOP
Press Secretary Difference between presidential
management styles? Pyramid –Reagan, Ike Hub & Spoke (Circular) – FDR, JFK Ad Hoc - Clinton, George W. Bush
Video on thesedifferent presidentialmanagement styles
Executive Office of the President The EOP is
a policymaking body President’s right arm
umbrella agency of several separate agencies staffed by P’s closest advisors and assistants
National Security Council OMB Council of Economic
Advisors Domestic Policy Council Trade Representative
National Security Council Advises P in domestic,
foreign and military matters relating to national security
P Chairs – includes VP, Sec. Of State & Defense, various directors
Condoleeza Rice – during Bush’s 1st administration
Currently Thomas Donilon
Susan Rice, appointed June 2013
Breakdown in Policy Implementation Why do bureaucratic breakdowns occur?
Faulty program design – unclear goals Lack of clarity in stating policy (by Congress) Lack of resources –staff, training, funding “Standard operating procedures” – necessary
routines that become frustrating “red tape” Administrative discretion (such as IRS!)
Street-level bureaucrats – police, social workers… Too many rules/regs gives them too many options
to choose from Fragmentation – diffusion of responsibility to
several different agencies (e.g., control over illicit drugs)
The President & The Bureaucracy
How does P influence the bureaucracy? Appointments to jobs Issuing Executive Orders that agencies must
comply with Recommending increases/decreases in
budgets (OMB) Note: agencies always “pad” their initial budget
requests – why? Can ask to reorganize/create federal depts.
(Congress actually does it)
Congress &The Bureaucracy Even greater power than the P How does Congress influence the
bureaucracy? Senate approves appointments to jobs Can investigate executive agencies for
compliance Can abolish / create agencies Approve/disapprove budgets
IRON TRIANGLES
Difference between Iron Triangles & Issue Networks
Iron Triangle = informal alliances between 3 groups: Interest Group - An industry and
its lobbyists Bureaucracy - An agency in the
Executive branch Legislature - Congressional
committee dealing with that agency
Work together to formulate and implement policy in their area of interest; work behind the scenes
An example? Cigarette manufacturers; tobacco lobbyists Dept. of Agriculture House & Senate Ag committees
ISSUE NETWORKS - policy communities – alliances that include various interest groups & individuals (scholars, experts)
Work in the public sector to promote a single issue in public policy – push for a policy change within the bureaucracy.
Can be either domestic or international in scope, and many are active solely within the domain of the internet
An example is the wide ranging network of environmental groups and individuals who push for more environmental regulation in government policy.