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.