1. The Bureaucracy
Chapter 9

2. In this discussion we will learn about
The definition of bureaucracy
The evolution, organization, and roles of the federal bureaucracy
Politics inside the bureaucracy
The relationship between the federal bureaucracy and the other branches of the federal government
How citizens relate to the bureaucracy

5. What is bureaucracy?
An organization characterized by hierarchical structure, worker specialization, explicit rules, and advancement by merit (experience, tenure and ability) rather than political patronage.
Goal is professionalization and the removal of politics (the political machine) or depoliticized of the work of government by making it more professional.
The notion is that in modern public administration, Government workers (bureaucrats), who are professionally trained and receive their jobs based on education rather than political connections, should be loyal to their profession rather than a political party.

6. What is bureaucracy?, cont’d.
Classic definition from Max Weber (pronounced Vaber):
Hierarchy: clear chain of command and responsibility
Specialization: tasks divided by expertise
Explicit rules: rules rather than preferences govern decisions; have standardization, predictability
Merit: hiring based on exams and experience, not politics
Father of modern U.S. Bureaucracy: President Woodrow Wilson

7. Tammany Hall
The Tammany Society of New York City was founded in 1786 as a fraternal organization whose primary activities were social. By 1798, however, the society's activities had grown increasingly politicized and eventually Tammany emerged as the central proponent of Jeffersonian policies in the city of New York

8. Tammany Hall
Tammany Hall was the name given to the Democratic political machine that dominated New York City politics from the mayoral victory of Fernando Wood in 1854 through the election of Fiorello LaGuardia in The eighty-year period between those two elections marks the time in which Tammany was the city's driving political force, but its origins actually date to the late eighteenth century and its fall from power was not truly complete until the early 1960s

9. Chicago’s Mayor Daily’s Machine
Richard Joseph Daley served for 21 years as the mayor and undisputed Democratic boss of Chicago and is considered by historians to be the "last of the big city bosses." He played a major role in the history of the Democratic party, especially with his support of John F. Kennedy in 1960.
His son, Richard Michael Daley was the last Mayor of Chicago. He was elected mayor in 1989 and reelected in 1991, 1995, 1999, 2003, and His 2007 re-election put him in position to become the longest-serving mayor in Chicago’s history, a record currently held by his father.
Current Chicago Mayor is Rahm Emanuel.

10. Benefits of the Spoils System
Winning Presidential candidate gives government jobs to supporters
Began in earnest with Andrew Jackson
Benefits of system
Government remains responsive to the people
Assured loyalty to the President
Increases party support, and possibly political participation

11. The spoils system
Nineteenth-century practice of rewarding political supporters with public office
Patronage was undone by civil service reforms, such as the Pendleton Act (1993) and the Hatch Act (1939)
Bureaucracies no longer staffed by patronage
The municipal exception:
Cities with a “weak” Mayoral structure, meaning a board of aldermen has significant law making powers, are often “unreformed” meaning they function using machine style patronage.
Examples include the City of St. Louis and Chicago
Opposites include St. Louis County, which has a city administrator and professional bureaucracy.
Some cities have more patronage slots than others.

12. As shown in the chart below, two-thirds of the 2010 Agriculture earmarks go to a small,
exclusive club within the House of those on the appropriations committee, committee chairs,
and party leadership. Can the appropriations process be characterized as a “spoils system,”
which is evocative of government corruption of the past, such as Tammany Hall?
But unlike the original Tammany Hall, today’s spoils system is not party-based. Instead, it’s run by an elite and bipartisan group within Congress.
Adopted from a posting by Jake Edwards of the Cato Institute.

13. Iron Triangle

15. Why is bureaucracy necessary?
Large tasks require organization, specialization and expertise
Think about what FDA does
Need agencies to carry out the work of government
Bureaucracies exist in private sector, too

16. Program process / implementation matters in program outcome and can often be complex. Below is a DMV’s activities for determining fitness to drive.
Process in theory

17. At any one step, variation from the plan can influence outcome.

18. Privatization
So what about privatization and public/private partnerships?
Benefits
Private sector thought to be able to do job more efficiently because money (profit) is valued and is the bottom line, rather than citizen input /fairness/process
Detriments
Accountability
Oversight / Transparency
Responsiveness
Examples of privatization:
Toll roads, bridges and tunnels; utilities; corrections, military (Blackwater); lotteries; airports; natural resources

21. Can government bureaucracies be run like private bureaucracies?
In short, no.
Why?
Different goals, different functions,
require different processes.
Business goal: profit
Government goal: general welfare
Government agencies must deal with people externally and internally differently than a private business
Citizen input
Merit system
Interaction of administration and politics
Constitution / other rules and regulations

22. Possible drawbacks of bureaucracy
Consequences in a rule-based system
Decisions are fair, but there is a lot of red tape
Would be classified as inefficiency in the public sector

23. Evolution of American federal bureaucracy
Design of federal bureaucracy less like a coherent structure and more like a patchwork quilt
Agencies came into existence as needs, complexities, and the diversity of the clientele (American citizens) grew.
First departments served essential government functions
State, War, Treasury
Early Federal Government Functions & Responsibilities primarily limited to:
Collect tax revenue
Defend the Nation
Conduct foreign relations
Enforce Federal laws
Promote internal communications

24. Evolution of American Federal Bureaucracy
Newer departments were responses to changing public needs, for example,
Western territories = Interior
Industrialization = Labor
What is the latest public need?
Security

25. Department of Homeland Security

26. Janet Napolitano

27. Evolution of American federal bureaucracy, cont’d.
Departments created to respond to demands of clientele groups
Clientele groups: groups of citizens whose interests are affected by an agency or a department and who work to influence its policies
E.g., agricultural interests pushed for Dept. of Agriculture and veterans for Dept. of Veterans Affairs

28. Organization of the federal bureaucracy
Four Types of Federal Agencies:
note: agency rules (or regulations), while in force, have the power of federal law
Executive Departments: major subdivisions of the federal government, represented in the president’s cabinet
E.g., Defense, State, Treasury, Homeland Security
Independent agencies: government organizations (established by Congress) independent of Executive Departments yet most falling within the executive branch and with a narrower policy focus than existing departments
E.g., EPA, CIA, Peace Corps, NASA
All heads serve at “Pleasure of President”

29. Organization of the federal bureaucracy, cont’d.
Independent regulatory boards and commissions: government organizations that regulate various businesses, industries, or economic sectors
E.g., FDA, FCC, National Labor Relations Board
Government corporations: companies created by Congress to provide goods or services to the public that private enterprise cannot or will not profitably provide
E.g., Insurance (FDIC), Energy (TVA), Communications / Postal Service (PO), Trans (AMTRAC)

30. Roles of the Federal Bureaucracy
Federal Government Rule Making ( )

31. Civilian Federal Employees 1820-2003
Era of “reinventing government”

32. Federal Government Growth (1820-2003): Per Capita Spending vs
Federal Government Growth ( ): Per Capita Spending vs. People Employed
Federal Bureaucracy now spending & doing more per person (per capita) w/less federal employees to do it
13-3c Growth of the Federal Government

33. Politics inside the bureaucracy
Specialization and expertise
Know more about policy than politicians and public
Why term limits may be bad
Identify with agency or profession
Committed to and protective of agency
Bureaucratic culture: the accepted values and procedures of an organization
Consequences of bureaucratic culture
Positive: commitment helps agency to make policy
Negative: resistant to suggestions of change, even to the extent of covering up problems
Whistle blowers are often the only check against these negatives

34. External bureaucratic politics
Interagency politics: competition between agencies for budget and resources
Constituency building
Build groups of supporters in public and Congress
Guarding the turf
Guard own programs and don’t let others duplicate traditional responsibilities
Why did 911 happen?

35. Constraints on federal bureaucracy: the president
Appointment power
Presidents appoint heads and next layers of departments
Power of persuasion

36. Constraints on the Federal Bureaucracy: The Congress
Article I: enumerated powers:
Says Congress can create also implies: modify or abolish
Congress can determine Bureaucracy’s structure & responsibility
Appropriate funds to accomplish responsibilities
Congress implied powers:
Oversight (GAO & CRS)
Committee & Sub-committee’s role
Budget authorization & appropriation for programs

37. Constraints on the federal bureaucracy: the courts
Courts may deal with cases against agencies or departments, but rarely
Administrative Law takes place within bureaucratic structure
Courts can place legal constraints on the rules bureaucracies make

38. Constraints on the federal bureaucracy: the citizens
Public seems unable to check bureaucracy.
Avenues for citizens to control bureaucracies:
Citizen advisory councils
Sunshine laws allow citizens to see when meetings are held
Sunset: laws or agencies that have a time limit and must be evaluated and renewed by Congress
E.g. No Child Left Behind, Patriot Act
Freedom of Information Act – get copies of agency info
Privacy Act (1974) – access to agency files on oneself