Transcript The Bureaucracy

Chapter Fifteen
The Bureaucracy
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Key Questions and Objectives
1.
Compare and contrast the United States and British models of
government bureaucracy.
2.
Sketch the history of the executive branch bureaucracy and the
different uses to which it has been put.
3.
Discuss the recruitment, retention, and demographic profiles
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of federal bureaucrats.
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4. Show how the roles and missions of the agencies are affected
arbyeinternal
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and external
factors.t his pictur e.
5.
Review congressional measures to control the bureaucracy
and evaluate their effectiveness.
6. List the “pathologies” that may affect bureaucracies and
discuss why it is so difficult to reform the executive branch
bureaucracy.
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THEME A: SIZE AND POWER OF THE BUREAUCRACY
The United States Bureaucracy
• Bureaucracy: a large, complex
organization composed of appointed
officials QuickT ime™ and a
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• Political authority over the bureaucracy is
shared by president and Congress
• Federal agencies share functions with
related state and local government
agencies
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Bureaucratic Organization or
Disorganization?
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Growth of the Bureaucracy
• Patronage in the 19th and early 20th
centuriesQuickT
rewarded
supporters,
induced
ime™ and a
congressional
support, and
built party
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organizations
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• The Civil War showed the administrative
weakness of the federal government and
increased demands for civil service reform
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Growth of the Bureaucracy
• The post-Civil War period saw
industrialization
and
the
emergence
of
a
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national
economy
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The
power of to
national
to
regulate interstate commerce became
necessary and controversial
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Expansion of the Bureaucracy
• The Depression and World War II led to
government
activism
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• The(Uncompressed)
Supreme Court upheld
laws that
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granted
discretion
to administrative
agencies
• Heavy use of income taxes supported war
effort and a large bureaucracy
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The Impact of 9/11
• 9/11 attacks could also affect the bureaucracy as
profoundly as WWII and the Depression
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and aof Homeland
• A new cabinet
agency
(Department
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Security)
was created
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pictur e. of
• ar
President
Bush to
discusses
Department of Homeland Security.
• Intelligence-gathering activities were consolidated
under a National Intelligence Director (NID
organization chart?) Why did Negroponte leave
as NID?
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Discussion Questions for Theme A
1. Prioritize the three ways in which the U.S. public
bureaucracy contrasts with those of other nations.
Which of these three characteristics is most relevant
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political executives? To civil
servants? To the
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citizen?to
Most
of the
contrasts
are e.
rooted in a
araverage
e needed
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concern for controlling the bureaucracy, securing
greater accountability, and obtaining responsiveness
from the executive branch. Have these goals been
realized?
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2.
Supreme Court cases notwithstanding, to what extent does
patronage continue to influence political appointments in the
federal and state governments? In regard to the federal
government, consider presidential appointment politics,
which seek to reward and incorporate influential interests.
Think about personal experiences at the federal and state
levels, as family employment and internships are often
ime™
andbetween
a the states
influencedQuickT
by party affiliations.
Contrasts
be considered because differing
patronage practices
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in political
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pictur e.
3.
How do you measure the power of a bureaucracy? For
example, do you think about the number of people employed
or the size of its budget or the breadth of its agenda, or other
factors? Why do you rely on one measure rather than another?
Note that the book, while concluding that power is measured
most accurately in terms of discretionary authority,
acknowledges that it has also been assessed in terms of
budgets and staffing. (Good Will Hunting NSA Clip and
wiretapping scandal)
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THEME B: CONTROL OF THE BUREAUCRACY
Growth of the Bureaucracy Today
• Modest increase in the number of
government employees
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• Significant
indirect increase
in number of
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employees
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of private
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contractors, state and local government
employees
• Bill Maher clip on the outsourcing of military
operations in Iraq
• Growth in discretionary authority
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Figure 15.2: Federal Government: Money,
People, and Regulations
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1.
2.
Why is there a spike at the beginning of this chart?
What is the overall trend of our economy dedicated to the federal
government?
Expenditures and employment: Statistical Abstract of the United States, 2000, Nos. 483 and 582; regulations;
Harold W. Stanley and Richard G. Miemi, Vital Statistics on American Politics (Washington D.C>: Congressional
Quarterly Press, 1998), tables 6-12, 6-14. Post-2000 data updated by Marc Siegal.
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Figure 15.2: Federal Government: Money,
People, and Regulations
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Expenditures and employment: Statistical Abstract of the United States, 2000, Nos. 483 and 582; regulations;
Harold W. Stanley and Richard G. Miemi, Vital Statistics on American Politics (Washington D.C>: Congressional
Quarterly Press, 1998), tables 6-12, 6-14. Post-2000 data updated by Marc Siegal.
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Figure 15.2: Federal Government: Money,
People, and Regulations
1. What are pages in
the federal
registrar
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Expenditures and employment: Statistical Abstract of the United States, 2000, Nos. 483 and 582; regulations;
Harold W. Stanley and Richard G. Miemi, Vital Statistics on American Politics (Washington D.C>: Congressional
Quarterly Press, 1998), tables 6-12, 6-14. Post-2000 data updated by Marc Siegal.
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Recruitment and Retention
• Competitive service: bureaucrats compete
for jobs through
OPM
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• Appointment
by merit based
on written
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pictur e.
exam
or through
• Scene from comedy “Spies Like Us”; Chevy
Chase and Dan Akryod try to pass exam to
become CIA spies
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Table 15.1: Minority Employment in the
Federal Bureaucracy by Rank, 2000
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Figure 15.3: Characteristics of Federal
Civilian Employees, 1960 and 1999
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Statistical Abstract of the United States, 1961, 392-394; Statistical Abstract of the United States, 2000,
Nos. 450, 482, 500, 595, 1118.
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Recruitment and Retention
• Competitive service system has become
more decentralized,
less
reliant
on
OPM
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referral
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• ar
Excepted
service:
bureaucrats
appointed
by agencies, typically in a nonpartisan
fashion
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Firing a Bureaucrat
• Most bureaucrats cannot be easily fired
• The Senior
Executive
Service
was
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a
established
to provide the
president and
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cabinet
with more
control
personnel
decisions
• But very few SES members have actually
been fired
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Carrying Out Policy
• Most bureaucrats try to carry out policy, even
those they disagree with
QuickT
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and apowers—
• But bureaucrats
do have
obstructive
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e Whistelblower
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• ar
FBI
• FBI Whistleblower and Pentagon Papers
Whistleblower
• Most civil servants have highly structured jobs
that make their personal attitudes irrelevant
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Constraints on the Bureaucracy
• Constraints are much greater on government
agencies than on private bureaucracies
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and
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• NBC News
investigates
private
military
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contractors.
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pictur e.are
• ar
Hiring,
firing, pay,
other
procedures
established by law, not by the market
• Unions and Homeland Security
• Constraints come from citizens: agencies try to
respond to citizen demands for openness,
honesty, and fairness
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Agency Allies
• Agencies often seek alliances with
congressional
committees
and
interest
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These
alliances
fart his
less pictur
common
today—politics has become too
complicated
• Issue networks: groups that regularly
debate government policy on certain issues
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Congressional Oversight
• Congress creates agencies
• Congress authorizes funds for programs
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a funds for
• Congressional
appropriations
provide
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the (Uncompressed)
agency to spend on its programs
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• Congressional investigations
• Widows of Blackfoot Security Contractors speak
before Congress.
• Congress investigates President's firing of US
Attorneys
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Discussion Questions for Theme B
1.The text defines bureaucracy as “a large,
complex organization composed of appointed
ime™
andCan
a you
officials.”QuickT
What does
this mean?
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envision
a large, simple organization?
Could
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e needed
to see
t his pictur
e.
such
an organization
accomplish
anything
consistently?
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2. The text’s definition of bureaucracy includes the
phrase “appointed officials.” Why do the large,
complex organizations in our society not have elected
rather than appointed officials? Wouldn’t electing
officials be more democratic? Should we elect the
Secretary of Defense or the Secretary of Health and
QuickT
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and Would
a
Human Services
(HHS),
for example?
this
make
these officials more responsive
to public
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opinion?
What about
Assistant
of
ar
e needed
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pictur e.
Defense? Would the president be more or less able to
control the bureaucracy if these officials were
independently elected? Would concerted, consistent
action be more or less likely if many more officials
were elected?
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3. The Pendleton Act has had both beneficial and harmful effects.
On the one hand, it has lessened the fear of job loss among civil
servants, making the bureaucracy sometimes resistant to
presidential direction. On the other hand, bureaucrats should
have some immunity to resist improper orders from politically
motivated superiors. How can these twin goals of competence
and political neutrality be balanced more perfectly than they are
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today?
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4. The text lists four factors that account for the behavior of
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to want
see
his pictur
e. to be
bureaucrats.
Would you
thetbehavior
of bureaucrats
most heavily determined by (a) the manner in which they are
recruited and rewarded; (b) their personal attributes, such as
their socioeconomic background and their political attitudes; (c)
the nature of the jobs they have; (d) responsiveness to outside
forces—political superiors, legislators, interest groups, or
journalists? Why? Having reached this conclusion, how much
authority would you delegate to bureaucrats manifesting these
motivations?
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5. What difference does the buddy system make in
federal hiring? Does this system embody the worst of
both worlds, allowing appointments neither by a
publicly accountable official (such as the president)
nor by merit? Are there possible advantages to the
buddy system?
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6. The(Uncompressed)
Chadha decision invalidated
the legislative veto.
ar
e needed
to continue
see t his
pictur
e. such
Why
does Congress
to enact
laws with
provisions? Could Congress adequately supervise the
exercise of delegated authority by bureaucrats without
a legislative veto?
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THEME C: BUREAUCRATIC “PATHOLOGIES”)
Bureaucratic Pathologies
• Red tape: complex, sometimes conflicting rules
• Conflict: agencies work at cross-purposes
QuickT
and aseem to do
• Duplication:
two or ime™
more agencies
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the (Uncompressed)
same thing
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his
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e.
• Imperialism: tendency of agencies to grow,
irrespective of programs’ benefits and costs
• Waste: spending more than is necessary to buy
some product or service
• 2000 Bush campaign ad attacking Al Gore and
bureaucrats.
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Reforming the Bureaucracy
• National Performance Review (NPR) in
1993 designed
to
reinvent
government
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calling
for less centralized
management,
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more
employee
ar
e needed
toinitiatives,
see t his fewer
picturdetailed
e.
rules, and more customer satisfaction
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Reforming the Bureaucracy
• Most rules and red tape are due to
strugglesQuickT
betweenime™
the president
and
and a
Congress
or to agencies’decompressor
efforts to avoid
T IFF
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alienating
influential
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e needed
to seevoters
t his pictur e.
• Periods of divided government worsen
matters, especially in implementing policy
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Discussion Questions for Theme C
1. The text says that red tape is partly a consequence of
bigness and largely a result of legal and political
requirements. Is this a sufficient explanation? Is there
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and
more red tape
in government
than
theseatwo factors
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explain? Might not bureaucrats
have a tendency to
ar
needed
tothat
see
t his procedures
pictur e.are
bee
more
concerned
elaborate
followed than that certain substantive outcomes
happen? Is there a bureaucratic mind-set that might
produce this result?
2. Explain why bureaucrats have little motivation to keep
costs down. Can this situation be remedied? If so,
how?
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Review and Wrap Up: The Bureaucracy
1. 31W
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2. Key
points from supplemental
readings
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3. Questions from Chapter Worksheet
4. I leave you with the immortal words of
Lisa Simpson.
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