1. Chapter 15
The Bureaucracy

2. Learning Objectives
What is “bureaucracy” and in what ways is the American bureaucracy distinctive?
What is “discretionary authority” and why do some bureaucrats have lots of it?
How does Congress exert control over the bureaucracy?
What happened to make the bureaucracy a “fourth branch” of American national government?
What are the actual size and scope of the federal bureaucracy?
What should be done to improve bureaucratic performance?
Is “red tape” all bad?
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3. Introduction WHO GOVERNS? TO WHAT ENDS?
What happened to make the bureaucracy a “fourth branch” of American national government?
What are the actual size and scope of the federal bureaucracy?
TO WHAT ENDS?
What should be done to improve bureaucratic performance?
Is “red tape” all bad?
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A bureaucracy is a large, complex organization composed of appointed officials.

4. Distinctiveness of the American Bureaucracy
Political authority shared among several institutions
Federal government agencies share functions with state/local governments
Adversary culture → close scrutiny
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5. Proxy Government Social Security Medicare Environmental protection
Income tax collection
Many military duties
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Mario Tama/Getty Images
People taken by boat away from their New Orleans homes that were struck by Hurricane Katrina in 2008.

6. The Growth of the Bureaucracy
The Beginning
The Appointment of Officials
A Service Role ( )
Laissez-faire government
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Because Congress, during most of the 19th and 20th centuries, was the dominant branch of government, congressional preferences often controlled the appointment of officials.

7. The Growth of the Bureaucracy
A Change in Role
Great Depression and the New Deal
World War II
Effects of 9/11
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A law creating a massive new cabinet agency, the Department of Homeland Security (DHS), was
passed in late 2002.

8. The Federal Bureaucracy Today
Has the size of the federal bureaucracy increased since 1960?
Number of federal employees stable
But an estimated 13 million people now work indirectly for federal government
Discretionary authority
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9. Federal Civilian Employment, 1990–2012
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Table 15.1
*Since its creation in 2003.
Source: Statistical Abstract of the United States , 2009 and 2012 (top)
Sources: Federal Bureau of Prisons Weekly Population Report and Quick Facts, available at and (bottom)

10. The Federal Bureaucracy Today
Recruitment and Retention
Office of Personnel Management
The competitive service
The excepted service
Not hired by the OPM
Some are nonpartisan in nature
Some are appointed (3%)
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The three types of excepted appointments are authorized presidential appointments, “Schedule C” appointments and noncareer executive assignments. These are the patronage jobs available to a president and his administration.

11. The Federal Bureaucracy Today
Recruitment and Retention
The Buddy System
Firing a Bureaucrat
The Agency’s Point of View
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A name-request job is one that is filled by a person whom an agency has already identified.

12. The Federal Bureaucracy Today
Personal Attributes
Social class
Education
Personal political beliefs
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13. Characteristics of Federal Civilian Employees, 1960 and 2012
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Figure 15.2
Source: Statistical Abstract of the United States, 1961, pp. 392–394; Office of Personnel Management, Data Analysis & Documentation: Federal Employment Records , September 30, 2012.

14. The Federal Bureaucracy Today
Do Bureaucrats Sabotage Their Political Bosses?
To block or to carry out?
Whistle Blower Protection Act (1989)
Culture and Careers
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How common is bureaucratic sabotage?

15. The Federal Bureaucracy Today
Constraints
Administrative Procedure Act
The Growth of the Bureaucracy
Freedom of Information Act
National Environmental Policy Act
Privacy Act
Open Meeting Law
Effects of Constraints
Government acts slowly
Government can act inconsistently
Easier to block action (than to take action)
Lower-ranking employees reluctant to make decisions
Red tape
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16. Why So Many Constraints?
The People (and enacted by Congress, Courts, White House, Interest Groups)
Agency Allies
Iron triangle (client politics)
Issue networks
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Issue networks consist of people in Washington-based interest groups, on congressional staffs, in universities and think tanks, and in the mass media, who regularly debate government policy on a certain subject. The networks are contentious, split along political, ideological, and economic lines.

17. Congressional Oversight
The Appropriations Committee and Legislative Committees
The Legislative Veto
Congressional Investigations
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No federal agency exists without congressional approval, and no money can be spent unless first authorized by Congress. Funds must also be appropriated.

18. Bureaucratic “Pathologies”
Red Tape
Conflict
Duplication
Imperialism
Waste
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David McNew/Getty Images
At the world’s busiest border crossing, cars line up to enter the United States in Tijuana, Mexico.

19. How the Public Views Particular Federal Agencies
Percent reporting a “favorable or unfavorable impression”* *Other response categories were “never heard of” and “can’t rate,” and only the newest agency, the Transportation Safety Administration, drew significant numbers in each category ( 9 percent for each).
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Source: Adapted from results of a nationally representative Associated Press/IPSOS Public Agenda poll conducted December 17–19, 2007.

20. Reforming the Bureaucracy
The Brownlow Commission
The First Hoover Commission
The Ash Council
National Performance Review
Government Performance and Results Act
Performance Assessment Rating Tool
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The rivalry between the president and Congress for control of the bureaucracy makes bureaucrats nervous about irritating either branch, and so they issue rules designed to avoid getting into trouble, even if these rules make it hard to do their job.

21. Reforming the Bureaucracy
Do we really want to change who controls the bureaucracy?
May make bureaucracy too powerful
Weak /divided bureaucracy may help protect liberties
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SAUL LOEB/Stringer/Getty Images

22. President Obama Implements Government Reforms
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23. President Obama Implements Government Reforms
Taking a closer look:
Does President Obama need congressional approval to institute bureaucratic reforms? Why?
What interest groups likely protested these proposals?
Why is bureaucratic reduction more politically popular than increasing oversight?
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