Chapter 13 THEBUREAUCRACY

Learning Outcomes 13.1 Define the concept of bureaucracy, explain the role of organizations on the administration of the nation’s laws, examine the reasons for the growth of the bureaucratic state, and assess arguments for and against its continued expansion Describe the organization of the executive branch, the role of the civil service, and the bureaucracy’s responsiveness to presidential control. Copyright 2014 Cengage Learning 2

Learning Outcomes 13.3 Describe the roles of administrative discretion and rule-making authority in the execution of administrative policymaking Analyze how incrementalism and bureaucratic culture affect policymaking Identify obstacles to effective policy implementation Compare the strengths and weaknesses of reform efforts aimed at increasing the effectiveness of the bureaucracy’s performance. Copyright 2014 Cengage Learning 3

Organization Matters  Bureaucracies play central role in governments of modern society  Reflects need to survive  Environment filled with conflicting political demands and hostility  Organized based on political demands and needs of its clients; organization affects how well it can accomplish tasks Copyright 2014 Cengage Learning 4

Organization Matters  The Development of the Bureaucratic State  American Government: enormous growth at all levels during 20 th century  Principal causes: increasing complexity of society, public’s attitude toward business and social welfare changed Copyright 2014 Cengage Learning 5

Organization Matters  Can We Reduce the Size of Government?  Many Americans lack confidence in government  Ideological differences between parties and national budget deficit have shaped debate  Reagan – modestly successful at reducing government  Bush – worked to enlarge government: 9/11, drugs for seniors  Obama – expanded government: health care, financial services oversight  Budget cuts require reductions in programs Copyright 2014 Cengage Learning 6

Bureaus and Bureaucrats  The Organization of Government  Bureaucracy in Washington: disjointed collection of smaller bureaucracies  Departments  Independent agencies  Regulatory commissions  Government corporations  U.S. Postal Service Copyright 2014 Cengage Learning 7

8 Figure 13.1 Bureaucrats at Work

Bureaus and Bureaucrats  The Civil Service  National bureaucracy  2.8 million civilian employees  Account for less than 2 percent of U.S. work force  Pendleton Act (1883) designed to reduce patronage with hiring based on merit Copyright 2014 Cengage Learning 9

10 Figure 13.2: Good Jobs, Good Benefits

Bureaus and Bureaucrats  Presidential Control over the Bureaucracy  Civil service and other reforms insulate government workers from party politics  President appoints only 3,000 people, 1 percent of all executive branch employees  Pluralism can pull agencies in directions contrary to president’s wishes  Presidents still have considerable influence over agency policymaking  Appoint administrators sympathetic to their policy goals  Review policymaking to ensure in line with preferences Copyright 2014 Cengage Learning 11

Administrative Policymaking: The Formal Processes  Administrative Discretion  The latitude that Congress gives agencies to make policy in the spirit of their legislative mandate  Broadest discretion is in domestic and global security  Rule Making  Guides the issuance of regulations, which are authorized by congressional statutes Copyright 2014 Cengage Learning 12

Copyright 2014 Cengage Learning 13 Tarmac Hell

Administrative Policymaking: Informal Policies  The Science of Muddling Through  Way policy might be made in ideal world vs. way it is formulated in the real world  Rational-comprehensive model unrealistic  Real-world decision making parts company with ideal  Policymaking can never be based on truly comprehensive analyses Copyright 2014 Cengage Learning 14

Administrative Policymaking: Informal Policies  The Culture of Bureaucracy  Bureaucrats – inflexible and lack authority to get things done  Norms guide individual behavior  Influenced by prevailing customs, attitudes and expectations of people working with them  Sense of mission affects decisions about agency objectives  Flexibility limited by legal requirements and need to treat everyone equally Copyright 2014 Cengage Learning 15

Problems in Implementing Policy  Implementation may be difficult  Policy not clearly stated  Directives lack clarity, leave too much discretion  Complexity of public policy problems  Incremental process – trial and error Copyright 2014 Cengage Learning 16 Pollution in Los Angeles

Reforming the Bureaucracy: More Control or Less?  Deregulation  Popular with conservatives  Difficult with health and safety issues  Industry claim regulations burdensome and reduce profits  FDA: Drug licensing procedures illustrate dangers  Some agencies allow companies flexibility in how to meet standards  EPA: Pollution cap  Increased transparency and accountability Copyright 2014 Cengage Learning 17

Bureaucratic Heroine Copyright 2014 Cengage Learning 18

Copyright 2014 Cengage Learning 19 Figure 13.3 It Makes a Difference

Reforming the Bureaucracy: More Control or Less?  Competition and Outsourcing  Conservatives want government to act like businesses  Emulate private sector practices  Recent reformers advocate privatization  Movement towards competition and outsourcing continues to grow Copyright 2014 Cengage Learning 20

Reforming the Bureaucracy: More Control or Less?  Performance Standards  Holding agencies accountable for reaching quantifiable goals each year or budget cycle  Government Performance and Results Act  No Child Left Behind  States allowed to implement their way Copyright 2014 Cengage Learning 21

Copyright 2014 Cengage Learning 22 Figure 13.4: Meeting Performance Standards a Problem? Just Lower Them