THE BUREAUCRACY The Fourth Branch?

1. THE BUREAUCRACYThe Fourth Branch?

2. 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. Bureaucracy is …

3. People often complain about all the bureaucratic “red tape.” • Where did the phrase “red tape” originate?

4. 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.

5. 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.

6. 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

7. 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.)

8. 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

9. 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

10. 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

11. 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

12. 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

13. 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

14. Independent Executive Agencies • 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

15. 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

16. 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

17. 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”

18. 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 these different presidential management styles

19. 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

20. 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

21. 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)

22. 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)

23. 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

24. IRON TRIANGLES

25. 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.