The Executive Branch

The Bureaucracy Problem All organizations have –Standard operating procedures –Culture (values) –Interests (seek autonomy, resources, prestige)

The Bureaucracy Problem Because of standard procedures, values and interests, problems arise: –Resistance to change –Isolation –Fragmentation –Lack of co-ordination

Resistance to Change Culture: “The Concern about the FBI is that it has long favored its criminal justice mission over its national security mission” - 9/11 Commission Report, page 423

Vested interests leads to Isolation: “Responsibility for domestic intelligence gathering on terrorism was vested solely in the FBI, yet during almost all of the Clinton Administration the relationship between the FBI Director and the President was nearly nonexistent. The FBI Director would not communicate directly with the President. His key personnel shared very little information with the National Security Council and the rest of the national security community. As a consequence, one of the critical working relationships in the counterterrorism effort was broken.” - 9/11 Commission Report, page 358

Fragmentation: Members of the U.S. Intelligence Community Office of the Director of Central Intelligence The Central Intelligence Agency (CIA) National intelligence agencies: –National Security Agency (NSA) –National Geospatial-Intelligence Agency (NGA) –National Reconnaissance Office (NRO) Departmental intelligence agencies: –Defense Intelligence Agency (DIA) – Defense Dept. –Intelligence entities of the armed forces –Bureau of Intelligence and Research (INR) – State Dept. –Office of Terrorism and Finance Intelligence – Treasury Dept. –Office of Intelligence and the Counterterrorism and Counterintelligence – FBI, Justice Dept. –Office of Intelligence – Energy Dept. –Directorate of Information Analysis and Infrastructure Protection (IAIP) – Homeland Security –Directorate of Coast Guard Intelligence – Homeland Security

Lack of Co-ordination: Proposed Reforms Structural barriers to performing joint intelligence work Lack of common standards and practices across the foreign-domestic divide Divided management of national intelligence capabilities Weak capacity to set priorities and move resources Too many jobs Too complex and secret - 9/11 Commission Report, pages

Historical Evolution of U S. Bureaucracies 1.Dubious ancestry 2.Built on spoils system 3.Civil service reform bottom-up, not top down

Dubious Ancestry

“The climate was intolerable. The place was a menace to health, pervaded with contaminated vapour, which brought on all manner of agues and other complaints.... The cuisine was atrocious--hog and hominy grits and not even any fruit fit for hogs to eat. The residential accommodations were narrow,... uncomfortable and expensive.” James Young, The Washington Community

Built on spoils system

Black Representation in State and Local Government Compare to Private Sector Administrators and Professional Staff Clerical and Technical Workers Skilled CraftsService Workers

Administrators and Professional Staff Clerical and Technical Workers Skilled CraftsService Workers Hispanic Representation in State and Local Government Compare to Private Sector

Bottom-up reforms erode spoils system

Pendleton Act

“blanketed in”

Hatch Act

20 Number of Public Sector Employees

21 Union Membership by Sector,

Homeland Security Act

Patronage Today

High Level Patronage Appointments in the Average Government Department

“inners and outers”

Congressional politics and bureaucracy

Senatorial Courtesy

Average Time It Takes Presidential Appointees to Be Confirmed Kennedy 1961 Nixon 1969 Carter 1977 Reagan 1981 Bush 1989 Clinton 1993 Bush 2001

“The new [Bush] administration – like others before it – did not have its team on the job until at least six months after it took office.” - 9/11 Commission Report, page 422

“Recommendation: Since a catastrophic attack could occur with little or no notice, we should minimize as much as possible the disruption of national security policymaking during the change of administrations by accelerating the process for national security Appointments” - 9/11 Commission Report, page 422

Budgetary control Decide funding for each agency, and programs within agencies. “Earmark”—the way to get pork for your district

THE IRON TRIANGLE Bureaucratic Agency Benefits Appropriations/Authority Interest Groups Pressure/Votes Congressional Subcommittee

Establishment Year of Each Cabinet Department and Group Allies DepartmentYearGroup Allies Inner Cabinet State1789 Treasury1789 Justice (Attorney General)1789 War (Defense)1789 Outer Cabinet Interior1849 Timber, miners, ranchers Agriculture1889 Farm Bureau and other farm groups Commerce1913 Chamber of Commerce Labor1913 AFL-CIO Health and Human Services1953 American Association of Retired Persons Housing and Urban Development1965 League of Cities Transportation1966 Auto manufacturers, truckers, airlines Energy1967 Gas, Oil, nuclear interests Education1979 Teacher unions Veterans Affairs1987 American Legion, VFW Environmental Protection Agency1990 Sierra Club and other environmental groups Homeland Security2002

Independent Agencies and their Group Allies Board Length Independent Agency Size of TermGroup Allies National Credit Union Administration 3 6Credit Unions Federal Reserve Board 7 14Banks Security and Exchange Commission 5 5 investment banks, etc Consumer Product Safety 5 5Consumers Union Equal Employment Opportunity 5 5 Civil rights groups Federal Deposit Insurance Corporation 3 6Banks Federal Energy Regulatory Commission 4 4Oil/gas interests Federal Maritime Commission 5 5Fisheries Federal Trade Commission 5 7Business groups National Labor Relations Board 5 5Unions Securities and Exchange Commission 5 5Wall Street Tennessee Valley Authority 3 9Regional Farmers and utilities

Iron Triangle that Existed in the 1950s Joint Committee on Atomic Energy (Congress) “Big Four of the Nuclear Power Industry” (General Electric, Westinghouse, Combustion Engineering, Babcock and Wilcox) Atomic Energy Commission (independent agency in the executive branch)

Consumer Groups (National Taxpayers Union, PIRG) Environmental Groups (Sierra Club, Friends of the Earth) Scientific Groups (Union of Concerned Scientists, American Physical Society) Senate Environmental & Public Works Committee House Interior and Insular Affairs Committee Environmental Protection Agency Department of the Interior Nuclear Regulatory Commission Department of Energy Construction Companies (Bechtel, Raytheon, Stone & Webster) The “Big Four” Manufacturers Scientific Groups (Union of Concerned Scientists, American Physical Society) House Energy & Commerce Committee Senate Energy & Natural Resources Committee American Nuclear Energy Council State Governments Courts News MediaThink Tanks and Universities Issue Network that exists today (1970s – 1990s)