1. The Bureaucracy

2. Where do you encounter bureaucracy in your everyday life?
What is a bureaucracy?
Where do you encounter bureaucracy in your everyday life?

3. “a bureaucracy” vs. “the bureaucracy”
A systematic way of organizing a complex and large administrative structure
Officials are appointed, not elected
Many large companies use a bureaucratic structure; universities are also excellent examples of bureaucracies

4. Characteristics of a Bureaucracy
There is internal division of labor and specialization by function.
Employees are recruited and promoted based on relevant technical expertise.
Various units of the bureaucracy are arranged in a hierarchy (clear lines of authority and communications).
Operations are guided and constrained by established rules and procedures.
There is an emphasis on establishing goals efficiently and effectively.

5. What is the bureaucracy?
The various agencies of the federal government.
Includes the people who do the day-to-day job of governing.
What do bureaucrats do?
The EPA inspector who goes out to a factory and makes sure it is not polluting.
The IRS agent who checks your taxes.
FDA meat inspectors
Intelligence officers of the CIA

6. Bureaucracy Basics “The bureaucracy has 2 masters”
Agencies are created and funded by Congress
Most of them report to the President, who supervises them
Federalism – many agencies also work with other organizations at the state and local levels of govt.

7. The Constitution
Makes the President responsible for appointing (with the “advice and consent of the Senate”) public officials, including ambassadors, judges, and “all other officers of the United States whose appointments are not herein otherwise provided for, and which shall be established by law.” (Article II, Section 3)

8. History of Bureaucracy in the U.S.
Beginnings (1789 – 1829)
during GW’s presidency Congress created the Dept. of State to assist TJ (Sec. of State)
members drawn from the upper-class, white male elite
Spoils system (1829 – 1881)
Pres. Andrew Jackson employed a spoils system to reward party loyalists with key federal posts.
Spoils system: practice of giving offices and government favors to political supporters and friends.

9. History of Bureaucracy in the U.S.
Reform Movement ( )
spoils system was under attack
allowed people with little knowledge and experience to be appointed
presidents were accused of “selling” positions or using them as bribes in exchange for political support
The Pendleton Act (The Civil Service Act of 1883)
established a merit system as the basis for hiring and promotion
Civil Service Commission  testing program

11. History of Bureaucracy in the U.S.
Hatch Act of 1939
Prohibits government employees from engaging in many party activities
Could not engage in political activities while on duty
Could not run for office or seek political funding while off duty
Complaints that 1st Amendment rights were violated  S.C. case (justices said restrictions were not unreasonable)
Amended in 1993 – softened the restrictions
Federal bureaucrats still cannot run as candidates in elections, but they may be active in party politics.

12. History of Bureaucracy in the U.S.
The Modern Bureaucracy
Civil Service Reform Act of 1978
created the Office of Personnel Management
administers written examinations
in charge of hiring for most agencies
Merit Systems Protection Board
hears and investigates employee appeals against agency actions
orders disciplinary actions against agency execs or employees

13. Part 1: When Disaster Strikes – FEMA to the Rescue
Discuss the portrait of FEMA bureaucrats presented in the video. Do these government workers match our general image of a bureaucrat?
Describe other government workers who do not match the stereotype of a bureaucrat.

14. Part 2: The Birth of the EPA
Why was the EPA created?
What role does leadership play in creating an effective bureaucracy?
Can any bureaucracy operate effectively without clear political guidance as to what goals it should pursue?

15. Part 3: A Dollar Earned – or is it?
Why did the state department of labor move to prohibit children from serving as umpires?
Did the department have any options?
Looking at the compromise that was reached in the legislature, has it placed the department of labor in a position to enforce the law?

16. Characteristics of a Bureaucracy
Hierarchical authority – similar to a pyramid; clear lines of authority and communication; employees are recruited and promoted based on relevant technical expertise.
Job specialization – each worker has defined duties and responsibilities; a division of labor exists among workers
Formal rules and procedures
There is an emphasis on establishing goals efficiently and effectively.

17. Conflicts or Trade-offs Inherent in Bureaucracy
Fairness versus responsiveness  Do we want our bureaucracy to be fair and treat each individual or case as a special instance, or do we want them to be as responsive to all as possible?
Efficiency versus effectiveness  Do we want our bureaucracy to select the most efficient way to do something, or do we want it to select the most effective?
Professional independence versus accountability  What do we want and expect of our bureaucrats? Do we want them to have the professional independence to make decisions as needed, or do we want them to be accountable?
Bureaucracies cannot make everyone happy.

19. Sources of Bureaucratic Power
They are essential  The public needs the work done by the agencies.
Expertise  The employees and agency have technical knowledge and skills the public lacks.
Discretion  When Congress passes legislation, it frequently gives the bureaucracy the discretion to determine major aspects of implementation. This ability to decide how laws are carried out can translate into a great deal of power.
Clientele groups  The people who use or benefit from an agency can help provide influence for an agency. If the people who use an agency are politically powerful, then agency budgets are less likely to be cut, agency initiatives are more likely to be successful in Congress, etc.
Example: Someone needs to be monitoring air traffic in the U.S. for our safety. When the public comes to rely on an agency for some task, then the agency becomes powerful.
Example: The FDA inspects the meat supply, or the Nuclear Regulatory Commission inspects nuclear power plants. The average member of the public does not have the knowledge or skill to do these things, so they rely on the bureaucracy.
Reference – interconnections between Congress and bureaucracy  Congress has to compromise and be vague in passing legislation.
Example: Farmers and the Dept. of Agriculture; reference the power and activities of interest groups

20. Types of employees found in any agency
Careerist
spend long periods of time, if not their entire careers, working for a single agency
associate their own success with that of the agency
usually found at the bottom of the agency and are risk averse
Pros: they may be a source of loyalty, reliability, and stability
Cons: it can be difficult to change their behavior

21. Types of employees found in any agency
Politician
Tend to work in the agency for relatively short periods of time
Use the agency as a stepping-stone to something bigger and better
Motivated by self-interest
Tend to be found in the middle of the organizational structure
Pros: can be a valuable source of creativity and new ideas
Cons: can be a source of destabilization
Are willing to take risks!

22. Types of employees found in any agency
Professional
Get their rewards, norms, and standards from their professional groups outside of the agency (e.g. attorneys, academics, etc.)
Pros: If the agency’s goals and expectations are in line with those of their profession, then these employees will be very productive and easy to manage.
Cons: If the agency seeks behavior that is contrary to what is valued by the profession, conflict is likely.

23. What do bureaucrats do?
Develop procedures and rules for implementing policy goals
Manage government affairs
collection of taxes (IRS)
distribution of mail (USPS)

25. The President and the Bureaucracy
Appointments: can appoint agency leaders who agree with him
Executive orders: agencies must obey
Economic powers: the OMB may cut or add to an agency’s budget
Reorganization: the president may reorganize or combine agencies to reward or punish them. (limited by Congress and interest groups)

26. Congress and the Bureaucracy
Duplication: Congress rarely gives any one job to a single agency; prevents any one agency from becoming too powerful
Authorization: No agency may spend money unless it has first been authorized and appropriated by Congress.
Hearings: Congressional committees may hold hearings to question agency actions or abuses publicly.
Legislation: can make legislation more detailed to restrict an agency’s power.

27. Influences/checks on the Federal Bureaucracy
Executive influences
Congressional influences
Iron triangles
Issue networks

28. Iron Triangles
CONGRESS
INTEREST GROUPS
BUREAUCRACY
Iron Triangle - three-way alliance among legislators, bureaucrats, and interest groups to make or preserve policies that benefit their respective interests

29. Iron Triangles

30. How it works? Everyone in the triangle has a similar interest
Legislators get funding from interest groups and make laws reality with the help of the bureaucracy
Interest groups provide valued information to bureaucrats and money to legislators
Bureau chiefs implement legislator policy and interest group goals.

31. Why are they “iron”?
Strong – bond can’t be broken by President or Congress
Referred to as “sub governments,” all the real decisions are made among these 3 groups
Might maintain interests that might not be publicly popular… like what?

32. Example – Why is tobacco not illegal?
House and Senate agricultural subcommittees
Tobacco farmer interest groups (tobacco lobby)
Department of Agriculture
House and Senate representatives, sympathetic to tobacco, receive campaign funds and support from tobacco by interest groups, and the representatives make sure that tobacco farmers are defended through legislation. DOA agency executes the legislation while relying on the Congressional budget. The interest groups provide the DOA with valuable information to effectively execute laws.
-COMMON INTEREST – Keep tobacco alive = keep their jobs alive

33. Other Iron Triangle Examples
The American Association for Retired People (AARP), the House Subcommittee on Aging, and the Social Security Administration all working together to set government policy on Social Security.
The Bureau of Alcohol, Tobacco, Firearms, and Explosives, the National Rifle Association, and the Judiciary Committees work together to shape gun control legislation.

34. Issue Network More complicated connection exists
Iron triangle too simple – there are IGs from opposite sides of an issue who compete
Issue Network – complex group (includes media) that debates an issue and slows policy-making
Policy-making is not as smooth with competing demands from IGs
President can appoint an agency head who steers policy, but can never smoothly control policy

35. Issue Networks
Individuals in Washington (located within interest groups, Congressional staff, think tanks, universities, and the media) who regularly discuss, advocate, and/or debate public policies.
Continually form and disband according to the policy issues
Contentious – arguments and disagreements generally occur along partisan, ideological, and economic lines

36. Criticism of Bureaucracy
“Red tape” – maze of gov rules, regulations, and paperwork that makes gov overwhelming to citizens
Conflict – agencies that often work toward opposite goals
Duplication – agencies appear to do the same thing
Unchecked growth – agencies expand unnecessarily at high costs
Waste – spending more than necessary
Lack of accountability – difficult in firing an incompetent bureaucrat

37. Suggestions for Reform
Making it easier to fire a bureaucrat.
Rotating professionals between agencies and from outside.
Rewarding employee initiatives and having fewer rules.
Focus more on customer service.

38. The Bully Pulpit
Bully Pulpit - a public office or position of authority that provides its occupant with an outstanding opportunity to speak out on any issue.
The power and influence of the president have increased over time.
Examples of Presidents who used the bully pulpit effectively: Teddy Roosevelt, FDR, and Ronald Reagan

39. The Bully Pulpit Used by Presidents to: Manage a crisis
Demonstrate leadership
Announce the appointment of cabinet members and Supreme Court justices
Set and clarify the national agenda
Achieve a legislative agenda
Announce foreign policy initiatives

40. Lame Duck President one whose successor has been elected
have less influence due to the limited time remaining in office
can make decisions without fear of consequences (executive orders, pardons, appointments, etc.)

41. Is President Trump a Lame Duck President?