Chapter 15 The Bureaucracy

Copyright © 2011 Cengage WHO GOVERNS? WHO GOVERNS? 1.What happened to make the bureaucracy a “fourth branch” of American national government? 2.What are the actual size and scope of the federal bureaucracy? TO WHAT ENDS? TO WHAT ENDS? 1.What should be done to improve bureaucratic performance? 2.Is “red tape” all bad?

Warm-up rand paul ube.com/watch? v=dYiMXzuHO-g ube.com/watch? v=dYiMXzuHO-g ube.com/watch? v=dYiMXzuHO-g ube.com/watch? v=dYiMXzuHO-g End of filibuster End of filibuster Copyright © 2011 Cengage

Distinctiveness of the American Bureaucracy vs Europe Bureaucracy A=Political authority is shared among several institutions. (Congress/President) A=Political authority is shared among several institutions. (Congress/President) GB=Authority is passed down by PM GB=Authority is passed down by PM A=Federal government agencies share functions with state and local governments. A=Federal government agencies share functions with state and local governments. France=programs deal with edu./health/housing are centrally run France=programs deal with edu./health/housing are centrally run Copyright © 2011 Cengage

Comparing Bureaucracies A=“Adversary culture” leads to close public scrutiny=expansion of personal rights through lawsuits. Political action A=“Adversary culture” leads to close public scrutiny=expansion of personal rights through lawsuits. Political action Ex. Obama health care is in the courts/Sweden it would be uncontested Ex. Obama health care is in the courts/Sweden it would be uncontested Copyright © 2011 Cengage

Proxy Government Voters elect legislators who make laws, but the bureaucrats often pay other people to do the work. Voters elect legislators who make laws, but the bureaucrats often pay other people to do the work. Ex. State/local gov/business firms Ex. State/local gov/business firms Copyright © 2011 Cengage When the floodwaters of Hurricane Rita hit Lake Charles, LA, they created a crisis for the federal and state bureaucracies. p. 403 Ric Feld/AP Photo

Teach for America video clip  Educating future teachers for needy schools would appear to be a program that everyone supports. What is the financial reality of Teach for America?  How can this program become more effective? Should it be eliminated?  How would you restructure Teach for America to better serve needy communities?  Other than the Department of Education, should this program have additional oversight? Copyright © 2011 Cengage

Proxy Gov Social security, Medicare, military contracts Social security, Medicare, military contracts Ex. 1 st gulf war 60-1 people worked for gov. vs private contract Ex. 1 st gulf war 60-1 people worked for gov. vs private contract Last Iraq war/ about equal Last Iraq war/ about equal Huricane Katrina (2600 FEMA)/enlist the help of local groups Huricane Katrina (2600 FEMA)/enlist the help of local groups Copyright © 2011 Cengage

Blackwater

Prox gov Critics=system can’t keep track of how much money we send to public and private agencies is used Critics=system can’t keep track of how much money we send to public and private agencies is used Defenders=provides more flexibility, takes advantage of private and public skills, federalism principles Defenders=provides more flexibility, takes advantage of private and public skills, federalism principles Copyright © 2011 Cengage

Billion Dollar fraud video  When fraudulent practices associated with a bureaucracy (in this case, Medicare) come to light, who is usually blamed?  Should hospitals that overbilled Medicare be penalized? How?  Is it ethical for whistleblowers to receive a financial reward? Copyright © 2011 Cengage

The Growth of the Bureaucracy The Appointment of Officials The Appointment of Officials A Service Role A Service Role A Change in Role A Change in Role Great Depression World War II Copyright © 2011 Cengage In the 19 th century, railroads were so important to the nation that the Interstate Commerce Commission was created to regulate their rates. p. 404 Bettmann/Corbis

Appointment of officials President appoints President appoints But during 19 th and 20 th Century Congress was most influential But during 19 th and 20 th Century Congress was most influential Appointments were made on patronage/created abuses Appointments were made on patronage/created abuses Civil War really expanded the bureaucracy (needed many gov. agencies to oversee war effort) Civil War really expanded the bureaucracy (needed many gov. agencies to oversee war effort) Copyright © 2011 Cengage

Political Patronage Copyright © 2011 Cengage

A Service Role ,000 employees were added/half were post office ,000 employees were added/half were post office Pension office for Civil War veterans, Dept. Agriculture, labor, commerce, etc. Pension office for Civil War veterans, Dept. Agriculture, labor, commerce, etc. Role was to serve people/not regulate/Why? Role was to serve people/not regulate/Why? Laissez-faire=freely competitive economy, little to no gov. control Laissez-faire=freely competitive economy, little to no gov. control Copyright © 2011 Cengage

A change in Role Today’s Bureaucracy=shaped by Great Depression/WWII Today’s Bureaucracy=shaped by Great Depression/WWII The Gov. was now expected to play an active role in dealing with economic/social problems The Gov. was now expected to play an active role in dealing with economic/social problems WWII 1 st time gov. made heavy use of federal income tax ($5 billion-$44 billion) 16 th amendment 1913 (income tax) WWII 1 st time gov. made heavy use of federal income tax ($5 billion-$44 billion) 16 th amendment 1913 (income tax) Copyright © 2011 Cengage

Sources: Federal Bureau of Prisons Weekly Population Report and Quick Facts (available at and

The Federal Bureaucracy Today The power of the bureaucracy is measured by the extent of discretionary authority (extent that appointed bureaucrats can choose courses of action/make policies not spelled out in advance by laws) The power of the bureaucracy is measured by the extent of discretionary authority (extent that appointed bureaucrats can choose courses of action/make policies not spelled out in advance by laws) Ex. Who can own radio stations/what safety features can be on automobiles/what drugs shall appear on the market, etc. Ex. Who can own radio stations/what safety features can be on automobiles/what drugs shall appear on the market, etc. Copyright © 2011 Cengage

Federal employees aren’t just paper shufflers; many, such as this biologist, perform skilled professional tasks. p. 409 Pedro Ramirez Jr./NCTC Image Library/U.S. Fish and Wildlife Service

Recruitment and Retention Many belong to the competitive service=they were appointed after they passed a written examination by Office of Personnel Management (OPM) or met certain selection criteria (training, edu. Attainments, prior experience) Many belong to the competitive service=they were appointed after they passed a written examination by Office of Personnel Management (OPM) or met certain selection criteria (training, edu. Attainments, prior experience) Today (hire more people without OPM referral) Today (hire more people without OPM referral) Copyright © 2011 Cengage

FBI

Recruitment and Retention Reason (Pendleton Act 1883) Federal jobs are given based on merit not patronage /illegal to demote/fire anyone for political reasons Reason (Pendleton Act 1883) Federal jobs are given based on merit not patronage /illegal to demote/fire anyone for political reasons Written after Pres. Garfield was assassinated Written after Pres. Garfield was assassinated Today buddy system Today buddy system Copyright © 2011 Cengage

Police

Civil Service Reform Act 1978 Congress recognized that many high- level positions in civil service have imp. Policy making responsibilities/pres./cabinet officers out to have more flexibility in recruiting, assigning, and paying such people Congress recognized that many high- level positions in civil service have imp. Policy making responsibilities/pres./cabinet officers out to have more flexibility in recruiting, assigning, and paying such people 8000 people (Senior Executive Service) can be hired, fired, and transferred more easily than ordinary workers 8000 people (Senior Executive Service) can be hired, fired, and transferred more easily than ordinary workers Copyright © 2011 Cengge

The Federal Bureaucracy Today Copyright © 2011 Cengage One barrier to improving presidential control of the federal bureaucracy is that even the White House has become a large bureaucracy. p. 411 Tribune Media Services, Inc. All rights reserved. Printed by permission.

Iron Triangle Relationship between an agency, a committee, and an interest group Relationship between an agency, a committee, and an interest group Ex. Dept. of Veteran Affairs Ex. Dept. of Veteran Affairs The House and Senate committees on veteran’s affairs, veterans‘ organizations (American Legion) a The House and Senate committees on veteran’s affairs, veterans‘ organizations (American Legion) a Copyright © 2011 Cengage

Figure 15.1 Characteristics of Federal Civilian Employees, 1960 and 2005 Copyright © 2011 Cengage Sources: Statistical Abstract of the United States, 1961, 392–394; Statistical Abstract of the United States, 2009, table 482.

Congressional Oversight Authorization legislation=money must be authorized by Congress/starts in committee (ex. Agriculture) Authorization legislation=money must be authorized by Congress/starts in committee (ex. Agriculture) Appropriation=money formally set aside for a specific use) often is less than the amount authorized Appropriation=money formally set aside for a specific use) often is less than the amount authorized Copyright © 2011 Cengage

The Appropriations Committee and Legislative Committees Trust funds=operate outside gov. budget/appropriations committee have no control over it (ex. Social security/took in $615 billion/spent $516 billionTrust funds=operate outside gov. budget/appropriations committee have no control over it (ex. Social security/took in $615 billion/spent $516 billion Committee Clearance=congress can review/approve agency decision without passing a lawCommittee Clearance=congress can review/approve agency decision without passing a law Copyright © 2011 Cengage

Legislative Veto For many decades, Congress used this to control President/bureaucratic actions For many decades, Congress used this to control President/bureaucratic actions It is a requirement that an executive decision must lie before Congress for a specified period (usually days) before it takes effect/Congress could veto it if a resolution of disapproval passed by either house or both house It is a requirement that an executive decision must lie before Congress for a specified period (usually days) before it takes effect/Congress could veto it if a resolution of disapproval passed by either house or both house Copyright © 2011 Cengage

Congressional Investigations Not mentioned in Constitution/instead inferred power Not mentioned in Constitution/instead inferred power Congress may compel a person to attend an investigation by issuing a subpoena Congress may compel a person to attend an investigation by issuing a subpoena Copyright © 2011 Cengage

Bureaucratic Pathologies Complaints Complaints Red Tape=complex rules/procedures that must be done Red Tape=complex rules/procedures that must be done Conflict Conflict Duplication Duplication Imperialism Imperialism Waste Waste Copyright © 2011 Cengage At the world’s busiest border crossing, cars line up to enter the United States in Tijuana, Mexico. p. 420 David McNew/Getty Images

Conflict Exists because some agencies seem to be working at cross-purposes with other agencies Exists because some agencies seem to be working at cross-purposes with other agencies Ex. Agricultural stabilization and Conservation service pays farmers to grow fewer crops Ex. Agricultural stabilization and Conservation service pays farmers to grow fewer crops Copyright © 2011 Cengage

Duplication Two government agencies seem to be doing the same thing Two government agencies seem to be doing the same thing Ex. Border patrol/DEA both attempt to intercept illegal drugs Ex. Border patrol/DEA both attempt to intercept illegal drugs Copyright © 2011 Cengage

Imperialism Tendency of agencies to grow without regard to the benefits that their programs or costs they entail Tendency of agencies to grow without regard to the benefits that their programs or costs they entail Copyright © 2011 Cengage

Waste Spending more than its necessary to buy some product or service Spending more than its necessary to buy some product or service Ex. $90 for a nail Ex. $90 for a nail Copyright © 2011 Cengage

Reforming the Bureaucracy The Brownlow Commission ( ) recommended giving Pres. More assistants The Brownlow Commission ( ) recommended giving Pres. More assistants The First Hoover Commission ( )=suggested ways to improve top-level management The First Hoover Commission ( )=suggested ways to improve top-level management The Ash Council ( )=called for consolidating existing agencies into a few big “super departments” The Ash Council ( )=called for consolidating existing agencies into a few big “super departments” Copyright © 2011 Cengage

National Performance Review Al Gore latest=emphasized customer satisfaction. Al Gore latest=emphasized customer satisfaction. Government Performance and Results Act (GPRA) 1993=agencies must set goals, measure performance, and report the results Government Performance and Results Act (GPRA) 1993=agencies must set goals, measure performance, and report the results Performance Assessment Rating Tool (PART)=link management reform to the budget process Performance Assessment Rating Tool (PART)=link management reform to the budget process Copyright © 2011 Cengage

MEMORANDUM To: Dr. Robert Smith, president of Cybersystems Engineering From: James Logan, secretary of defense Subject: Becoming an assistant secretary of defense As both secretary and a dear old college buddy of yours, I write again to express my hope that you will accept the president’s call to service. We all desperately want you aboard. Yes, conflict-of-interest laws will require you to sell your stock in your present company and drop out of its generous pension plan. No, the government won’t even pay moving costs. And once you leave office, you will be barred for life from lobbying the executive branch on matters in which you were directly involved while in office, and you will be barred for two years from lobbying on matters that were under your general official authority. Your other concerns have teeth, too, but let me help you weigh your options. Copyright © 2011 Cengage WHAT WOULD YOU DO?

Arguments for: 1. I hate to preach, but it is one’s duty to serve one’s country when called. Your sacrifice would honor your family and benefit your fellow Americans for years to come. 2. As an accomplished professional and the head of a company that has done business with the government, you could help the president succeed in reforming the department so that it works better and costs less. 3. Despite the restrictions, you could resume your career once your public service was complete. Copyright © 2011 Cengage WHAT WOULD YOU DO?

Arguments against: 1. Since you will have to be confirmed by the Senate, your life will be put under a microscope, and everything (even some of our old college mischief together) will be fair game for congressional staffers and reporters. 2. You will face hundreds of rules telling you what you can’t do and scores of congressmen telling you what you should do. Old friends will get mad at you for not doing them favors. The president will demand loyalty. The press will pounce on your every mistake, real or imagined. 3. Given the federal limits on whom in the government you can deal with after you leave office, your job at Cybersystems may well suffer. Copyright © 2011 Cengage WHAT WOULD YOU DO?

Your decision: Accept position? Reject position? Copyright © 2011 Cengage WHAT WOULD YOU DO?