AM GOV 2010AM GOV 2010

Joseph A. Losco Joseph A. Losco

Ralph E. BakerRalph E. Baker

BUREAUCRACYBUREAUCRACY

Chapter 13Chapter 13

As You ReadAs You Read

What is the federal bureaucracy?What is the federal bureaucracy? Who are federal bureaucrats and what do Who are federal bureaucrats and what do

they do?they do? What are the sources and limits of What are the sources and limits of

bureaucratic power?bureaucratic power?

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BUREAUCRACTIC CHANGES BUREAUCRACTIC CHANGES AND EVOLVING CIVIC LIFE AND EVOLVING CIVIC LIFE

Prior to the Civil War the federal bureaucracy Prior to the Civil War the federal bureaucracy was quite small.was quite small. Officeholders came from relatively small pool of Officeholders came from relatively small pool of

prominent gentlemenprominent gentlemen Early bureaucratic appointees were chosen for Early bureaucratic appointees were chosen for

competencecompetence Under Andrew Jackson, appointments were based Under Andrew Jackson, appointments were based

on partisan political loyaltyon partisan political loyalty

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BUREAUCRACTIC CHANGES BUREAUCRACTIC CHANGES AND EVOLVING CIVIC LIFE AND EVOLVING CIVIC LIFE

The federal bureaucracy expanded rapidly The federal bureaucracy expanded rapidly following the Civil War.following the Civil War. Political loyalty remained basis of bureaucratic Political loyalty remained basis of bureaucratic

appointmentsappointments Pendleton Act (1883) reduced number of political Pendleton Act (1883) reduced number of political

appointments president could make, and created appointments president could make, and created professional civil serviceprofessional civil service

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BUREAUCRACTIC CHANGES BUREAUCRACTIC CHANGES AND EVOLVING CIVIC LIFE AND EVOLVING CIVIC LIFE

Today’s federal bureaucracy emphasizes Today’s federal bureaucracy emphasizes professionalism and treating the public as professionalism and treating the public as consumers.consumers. Parties still use bureaucracy to advance partisan Parties still use bureaucracy to advance partisan

interestsinterests The “new patronage” involves advancing specific The “new patronage” involves advancing specific

policies by influencing priorities and activities of policies by influencing priorities and activities of bureaucracybureaucracy

Reinventing government initiative is aimed at running Reinventing government initiative is aimed at running government like business with citizens as customersgovernment like business with citizens as customers

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THE NATURE OF THE NATURE OF BUREAUCRACY BUREAUCRACY

A bureaucracy incorporates the principles of A bureaucracy incorporates the principles of hierarchical authority, division of labor, and hierarchical authority, division of labor, and formal rules.formal rules. Tasks and responsibilities clear and distinctTasks and responsibilities clear and distinct Production of goods and services efficientProduction of goods and services efficient Decision making quick and unbiasedDecision making quick and unbiased

The principles that enhance efficiency and The principles that enhance efficiency and equal treatment can also make bureaucracies equal treatment can also make bureaucracies inflexible and unresponsive. inflexible and unresponsive.

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THE NATURE OF THE NATURE OF BUREAUCRACY BUREAUCRACY

Bureaucratic pathologies are failures by an Bureaucratic pathologies are failures by an organization to serve its intended purpose, organization to serve its intended purpose, including:including: Bureaucratic imperialismBureaucratic imperialism Failure to adaptFailure to adapt Neglecting legitimate citizen concernsNeglecting legitimate citizen concerns FavoritismFavoritism

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FEDERAL BUREAUCRATS FEDERAL BUREAUCRATS AND THEIR WORK AND THEIR WORK

Federal bureaucrats may be either political Federal bureaucrats may be either political appointees or career civil servants.appointees or career civil servants. Political appointees are chosen by president and Political appointees are chosen by president and

confirmed by Senateconfirmed by Senate Most federal bureaucrats are hired under a civil Most federal bureaucrats are hired under a civil

service systemservice system Bureaucrats perform professional, managerial, Bureaucrats perform professional, managerial,

technical, service, and clerical taskstechnical, service, and clerical tasks To ensure a nonpartisan civil service, it is difficult To ensure a nonpartisan civil service, it is difficult

to fire federal bureaucrats for any reasonto fire federal bureaucrats for any reason

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FEDERAL BUREAUCRATS FEDERAL BUREAUCRATS AND THEIR WORK AND THEIR WORK

The bureaucracy does the work that transforms The bureaucracy does the work that transforms laws into specific programs.laws into specific programs. The bureaucracy makes rules that specify how to The bureaucracy makes rules that specify how to

interpret or carry out a policyinterpret or carry out a policy Rule making is a public process; citizens are Rule making is a public process; citizens are

invited to comment on proposed rulesinvited to comment on proposed rules Many agencies invite interested groups to help Many agencies invite interested groups to help

write rules, a process called negotiated rule makingwrite rules, a process called negotiated rule making Agencies can compel compliance with rules Agencies can compel compliance with rules

through a process called administrative through a process called administrative adjudicationadjudication

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FEDERAL BUREAUCRATS FEDERAL BUREAUCRATS AND THEIR WORK AND THEIR WORK

The federal bureaucracy is organized into six The federal bureaucracy is organized into six major bureaucratic structures.major bureaucratic structures. Cabinet departments are directly responsible to the Cabinet departments are directly responsible to the

president, who appoints their heads with Senate president, who appoints their heads with Senate approvalapproval

Over 200 independent executive agencies that Over 200 independent executive agencies that administer major programs enjoy political administer major programs enjoy political independenceindependence

Independent regulatory agencies make and enforce Independent regulatory agencies make and enforce public policy on specific economic issuespublic policy on specific economic issues

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FEDERAL BUREAUCRATS FEDERAL BUREAUCRATS AND THEIR WORK AND THEIR WORK

Government corporations are businesses Government corporations are businesses established by Congress to make certain services established by Congress to make certain services affordable for average citizensaffordable for average citizens

Proxy administration consists of private parties Proxy administration consists of private parties that perform government tasks through contracts, that perform government tasks through contracts, vouchers, grants-in-aid, and mandatesvouchers, grants-in-aid, and mandates

Government-sponsored enterprises (GSE) are Government-sponsored enterprises (GSE) are federal agencies that operate as though they were federal agencies that operate as though they were privately owned and operatedprivately owned and operated

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SOURCES OF SOURCES OF BUREAUCRATIC POWER BUREAUCRATIC POWER

Bureaucratic agencies seek external support in Bureaucratic agencies seek external support in order to wield more power.order to wield more power. Try to shape positive public attitudes toward their Try to shape positive public attitudes toward their

agenciesagencies Try to build good relations with president and CongressTry to build good relations with president and Congress

Bureaucrats’ expertise in their areas gives them Bureaucrats’ expertise in their areas gives them great discretion in implementing public policies.great discretion in implementing public policies.

Civil servants tend to stay in office much longer Civil servants tend to stay in office much longer than politicians and political appointees.than politicians and political appointees.

Good leaders can translate an agency’s resources Good leaders can translate an agency’s resources into political power.into political power.

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CONTROLLING CONTROLLING BUREAUCRATIC POWERBUREAUCRATIC POWER

The Constitution empowers Congress to create, The Constitution empowers Congress to create, abolish, or alter bureaucratic agencies and abolish, or alter bureaucratic agencies and organizations.organizations. Congress can write laws that give bureaucrats little Congress can write laws that give bureaucrats little

room for interpretationroom for interpretation Congress can use the power of the purse to control Congress can use the power of the purse to control

bureaucratic authoritybureaucratic authority Congress can monitor activities of the bureaucracy Congress can monitor activities of the bureaucracy

using its oversight functionusing its oversight function Congressional review allows Congress to strike down Congressional review allows Congress to strike down

any new agency rule if both houses and the president any new agency rule if both houses and the president agreeagree

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CONTROLLING CONTROLLING BUREAUCRATIC POWERBUREAUCRATIC POWER

Presidents have acquired several tools to control Presidents have acquired several tools to control the bureaucracy.the bureaucracy. Senior Executive Service allows the president to Senior Executive Service allows the president to

reassign career civil servants to other agenciesreassign career civil servants to other agencies President can submit bureaucratic reorganization plans President can submit bureaucratic reorganization plans

to Congressto Congress President exercises control through his or her power of President exercises control through his or her power of

appointmentappointment President may fire political appointeesPresident may fire political appointees President can also use budget as a tool of President can also use budget as a tool of

administrative controladministrative control

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THE BUREAUCRACY AND THE BUREAUCRACY AND CIVIC ENGAGEMENTCIVIC ENGAGEMENT

Today, citizens have increased the nature and Today, citizens have increased the nature and scope of their interactions with government.scope of their interactions with government.

Many of today’s bureaucracy reflect an Many of today’s bureaucracy reflect an increasing government emphasis on increasing government emphasis on privatization.privatization.

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Number of Federal Employees in the Number of Federal Employees in the Executive BranchExecutive Branch

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Percent Distribution of Employment Percent Distribution of Employment in the Federal Governmentin the Federal Government

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Weber’s Model of a BureaucracyWeber’s Model of a Bureaucracy

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Employment in Federal Government by Employment in Federal Government by Occupation, 2006 and Projected ChangeOccupation, 2006 and Projected Change

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Base Pay Rates for Federal Base Pay Rates for Federal EmployeesEmployees

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The Paper Trail in RulemakingThe Paper Trail in Rulemaking

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The Cabinet DepartmentsThe Cabinet Departments

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Selected Independent Executive Selected Independent Executive AgenciesAgencies

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Selected Independent Regulatory Selected Independent Regulatory AgenciesAgencies

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Selected Government CorporationsSelected Government Corporations

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Hot or Not?Hot or Not?

Does the federal government do a Does the federal government do a good job responding to natural good job responding to natural disasters?disasters?

27

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Hot or Not?Hot or Not?

Do we expect too much from the Do we expect too much from the national government?national government?

28

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Hot or Not?Hot or Not?

Do bureaucrats have too much Do bureaucrats have too much power?power?

29

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Hot or Not?Hot or Not?

Is whistle-blowing ethical?Is whistle-blowing ethical?

30

Get InvolvedGet Involved

Check to see what federal government agencies Check to see what federal government agencies are within a twenty-mile radius of your campus. are within a twenty-mile radius of your campus. Interview federal bureaucrats, asking them about Interview federal bureaucrats, asking them about their educational background, training, job their educational background, training, job description, and the best and worst parts of their description, and the best and worst parts of their job.job.

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SummarySummary

What is the federal bureaucracy?What is the federal bureaucracy?

The federal bureaucracy is a complex The federal bureaucracy is a complex organization of departments, agencies, and organization of departments, agencies, and corporations that have the characteristics of corporations that have the characteristics of hierarchy, specialization, and formalized rules.hierarchy, specialization, and formalized rules.

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SummarySummary

Who are federal bureaucrats and what do Who are federal bureaucrats and what do they do?they do?

Federal bureaucrats are the civilian and mostly Federal bureaucrats are the civilian and mostly professional employees of the national professional employees of the national government who have a great deal of government who have a great deal of discretion in implementing government discretion in implementing government policies.policies.

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SummarySummary

What are the sources and limits of What are the sources and limits of bureaucratic power?bureaucratic power?

Bureaucrats draw on external support, their Bureaucrats draw on external support, their expertise and discretion, longevity on the job, expertise and discretion, longevity on the job, the vitality of the division, and their leadership the vitality of the division, and their leadership as sources of power that can, however, be as sources of power that can, however, be limited by Congress, the president, courts, and limited by Congress, the president, courts, and whistle-blowers.whistle-blowers.

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