AM GOV 2010 Joseph A. Losco Ralph E. Baker

BUREAUCRACY Chapter 13

As You Read What is the federal bureaucracy? What is the federal bureaucracy? Who are federal bureaucrats and what do they do? Who are federal bureaucrats and what do they do? What are the sources and limits of bureaucratic power? What are the sources and limits of bureaucratic power? 3© 2010 The McGraw-Hill Companies, Inc. All rights reserved.

BUREAUCRACTIC CHANGES AND EVOLVING CIVIC LIFE Prior to the Civil War the federal bureaucracy was quite small. Prior to the Civil War the federal bureaucracy was quite small. Officeholders came from relatively small pool of prominent gentlemen Officeholders came from relatively small pool of prominent gentlemen Early bureaucratic appointees were chosen for competence Early bureaucratic appointees were chosen for competence Under Andrew Jackson, appointments were based on partisan political loyalty Under Andrew Jackson, appointments were based on partisan political loyalty 4© 2010 The McGraw-Hill Companies, Inc. All rights reserved.

BUREAUCRACTIC CHANGES AND EVOLVING CIVIC LIFE The federal bureaucracy expanded rapidly following the Civil War. The federal bureaucracy expanded rapidly following the Civil War. Political loyalty remained basis of bureaucratic appointments Political loyalty remained basis of bureaucratic appointments Pendleton Act (1883) reduced number of political appointments president could make, and created professional civil service Pendleton Act (1883) reduced number of political appointments president could make, and created professional civil service 5© 2010 The McGraw-Hill Companies, Inc. All rights reserved.

BUREAUCRACTIC CHANGES AND EVOLVING CIVIC LIFE Today’s federal bureaucracy emphasizes professionalism and treating the public as consumers. Today’s federal bureaucracy emphasizes professionalism and treating the public as consumers. Parties still use bureaucracy to advance partisan interests Parties still use bureaucracy to advance partisan interests The “new patronage” involves advancing specific policies by influencing priorities and activities of bureaucracy The “new patronage” involves advancing specific policies by influencing priorities and activities of bureaucracy Reinventing government initiative is aimed at running government like business with citizens as customers Reinventing government initiative is aimed at running government like business with citizens as customers 6© 2010 The McGraw-Hill Companies, Inc. All rights reserved.

THE NATURE OF BUREAUCRACY A bureaucracy incorporates the principles of hierarchical authority, division of labor, and formal rules. A bureaucracy incorporates the principles of hierarchical authority, division of labor, and formal rules. Tasks and responsibilities clear and distinct Tasks and responsibilities clear and distinct Production of goods and services efficient Production of goods and services efficient Decision making quick and unbiased Decision making quick and unbiased The principles that enhance efficiency and equal treatment can also make bureaucracies inflexible and unresponsive. The principles that enhance efficiency and equal treatment can also make bureaucracies inflexible and unresponsive. 7© 2010 The McGraw-Hill Companies, Inc. All rights reserved.

THE NATURE OF BUREAUCRACY Bureaucratic pathologies are failures by an organization to serve its intended purpose, including: Bureaucratic pathologies are failures by an organization to serve its intended purpose, including: Bureaucratic imperialism Bureaucratic imperialism Failure to adapt Failure to adapt Neglecting legitimate citizen concerns Neglecting legitimate citizen concerns Favoritism Favoritism 8© 2010 The McGraw-Hill Companies, Inc. All rights reserved.

FEDERAL BUREAUCRATS AND THEIR WORK Federal bureaucrats may be either political appointees or career civil servants. Federal bureaucrats may be either political appointees or career civil servants. Political appointees are chosen by president and confirmed by Senate Political appointees are chosen by president and confirmed by Senate Most federal bureaucrats are hired under a civil service system Most federal bureaucrats are hired under a civil service system Bureaucrats perform professional, managerial, technical, service, and clerical tasks Bureaucrats perform professional, managerial, technical, service, and clerical tasks To ensure a nonpartisan civil service, it is difficult to fire federal bureaucrats for any reason To ensure a nonpartisan civil service, it is difficult to fire federal bureaucrats for any reason 9© 2010 The McGraw-Hill Companies, Inc. All rights reserved.

FEDERAL BUREAUCRATS AND THEIR WORK The bureaucracy does the work that transforms laws into specific programs. The bureaucracy does the work that transforms laws into specific programs. The bureaucracy makes rules that specify how to interpret or carry out a policy The bureaucracy makes rules that specify how to interpret or carry out a policy Rule making is a public process; citizens are invited to comment on proposed rules Rule making is a public process; citizens are invited to comment on proposed rules Many agencies invite interested groups to help write rules, a process called negotiated rule making Many agencies invite interested groups to help write rules, a process called negotiated rule making Agencies can compel compliance with rules through a process called administrative adjudication Agencies can compel compliance with rules through a process called administrative adjudication 10© 2010 The McGraw-Hill Companies, Inc. All rights reserved.

FEDERAL BUREAUCRATS AND THEIR WORK The federal bureaucracy is organized into six major bureaucratic structures. The federal bureaucracy is organized into six major bureaucratic structures. Cabinet departments are directly responsible to the president, who appoints their heads with Senate approval Cabinet departments are directly responsible to the president, who appoints their heads with Senate approval Over 200 independent executive agencies that administer major programs enjoy political independence Over 200 independent executive agencies that administer major programs enjoy political independence Independent regulatory agencies make and enforce public policy on specific economic issues Independent regulatory agencies make and enforce public policy on specific economic issues 11© 2010 The McGraw-Hill Companies, Inc. All rights reserved.

FEDERAL BUREAUCRATS AND THEIR WORK Government corporations are businesses established by Congress to make certain services affordable for average citizens Government corporations are businesses established by Congress to make certain services affordable for average citizens Proxy administration consists of private parties that perform government tasks through contracts, vouchers, grants-in-aid, and mandates Proxy administration consists of private parties that perform government tasks through contracts, vouchers, grants-in-aid, and mandates Government-sponsored enterprises (GSE) are federal agencies that operate as though they were privately owned and operated Government-sponsored enterprises (GSE) are federal agencies that operate as though they were privately owned and operated 12© 2010 The McGraw-Hill Companies, Inc. All rights reserved.

SOURCES OF BUREAUCRATIC POWER Bureaucratic agencies seek external support in order to wield more power. Bureaucratic agencies seek external support in order to wield more power. Try to shape positive public attitudes toward their agencies Try to shape positive public attitudes toward their agencies Try to build good relations with president and Congress Try to build good relations with president and Congress Bureaucrats’ expertise in their areas gives them great discretion in implementing public policies. Bureaucrats’ expertise in their areas gives them great discretion in implementing public policies. Civil servants tend to stay in office much longer than politicians and political appointees. Civil servants tend to stay in office much longer than politicians and political appointees. Good leaders can translate an agency’s resources into political power. Good leaders can translate an agency’s resources into political power. 13© 2010 The McGraw-Hill Companies, Inc. All rights reserved.

CONTROLLING BUREAUCRATIC POWER The Constitution empowers Congress to create, abolish, or alter bureaucratic agencies and organizations. The Constitution empowers Congress to create, abolish, or alter bureaucratic agencies and organizations. Congress can write laws that give bureaucrats little room for interpretation Congress can write laws that give bureaucrats little room for interpretation Congress can use the power of the purse to control bureaucratic authority Congress can use the power of the purse to control bureaucratic authority Congress can monitor activities of the bureaucracy using its oversight function Congress can monitor activities of the bureaucracy using its oversight function Congressional review allows Congress to strike down any new agency rule if both houses and the president agree Congressional review allows Congress to strike down any new agency rule if both houses and the president agree 14© 2010 The McGraw-Hill Companies, Inc. All rights reserved.

CONTROLLING BUREAUCRATIC POWER Presidents have acquired several tools to control the bureaucracy. Presidents have acquired several tools to control the bureaucracy. Senior Executive Service allows the president to reassign career civil servants to other agencies Senior Executive Service allows the president to reassign career civil servants to other agencies President can submit bureaucratic reorganization plans to Congress President can submit bureaucratic reorganization plans to Congress President exercises control through his or her power of appointment President exercises control through his or her power of appointment President may fire political appointees President may fire political appointees President can also use budget as a tool of administrative control President can also use budget as a tool of administrative control 15© 2010 The McGraw-Hill Companies, Inc. All rights reserved.

THE BUREAUCRACY AND CIVIC ENGAGEMENT Today, citizens have increased the nature and scope of their interactions with government. Today, citizens have increased the nature and scope of their interactions with government. Many of today’s bureaucracy reflect an increasing government emphasis on privatization. Many of today’s bureaucracy reflect an increasing government emphasis on privatization. 16© 2010 The McGraw-Hill Companies, Inc. All rights reserved.

Number of Federal Employees in the Executive Branch 17© 2010 The McGraw-Hill Companies, Inc. All rights reserved.

Percent Distribution of Employment in the Federal Government 18© 2010 The McGraw-Hill Companies, Inc. All rights reserved.

Weber’s Model of a Bureaucracy 19© 2010 The McGraw-Hill Companies, Inc. All rights reserved.

Employment in Federal Government by Occupation, 2006 and Projected Change 20© 2010 The McGraw-Hill Companies, Inc. All rights reserved.

Base Pay Rates for Federal Employees 21© 2010 The McGraw-Hill Companies, Inc. All rights reserved.

The Paper Trail in Rulemaking 22© 2010 The McGraw-Hill Companies, Inc. All rights reserved.

The Cabinet Departments 23© 2010 The McGraw-Hill Companies, Inc. All rights reserved.

Selected Independent Executive Agencies 24© 2010 The McGraw-Hill Companies, Inc. All rights reserved.

Selected Independent Regulatory Agencies 25© 2010 The McGraw-Hill Companies, Inc. All rights reserved.

Selected Government Corporations 26© 2010 The McGraw-Hill Companies, Inc. All rights reserved.

Hot or Not? Does the federal government do a good job responding to natural disasters? 27

© 2010 The McGraw-Hill Companies, Inc. All rights reserved. Hot or Not? Do we expect too much from the national government? 28

© 2010 The McGraw-Hill Companies, Inc. All rights reserved. Hot or Not? Do bureaucrats have too much power? 29

© 2010 The McGraw-Hill Companies, Inc. All rights reserved. Hot or Not? Is whistle-blowing ethical? 30

Get Involved Check to see what federal government agencies are within a twenty-mile radius of your campus. Interview federal bureaucrats, asking them about their educational background, training, job description, and the best and worst parts of their job. 31© 2010 The McGraw-Hill Companies, Inc. All rights reserved.

Summary What is the federal bureaucracy? What is the federal bureaucracy? The federal bureaucracy is a complex organization of departments, agencies, and corporations that have the characteristics of hierarchy, specialization, and formalized rules. 32© 2010 The McGraw-Hill Companies, Inc. All rights reserved.

Summary Who are federal bureaucrats and what do they do? Who are federal bureaucrats and what do they do? Federal bureaucrats are the civilian and mostly professional employees of the national government who have a great deal of discretion in implementing government policies. 33© 2010 The McGraw-Hill Companies, Inc. All rights reserved.

Summary What are the sources and limits of bureaucratic power? What are the sources and limits of bureaucratic power? Bureaucrats draw on external support, their expertise and discretion, longevity on the job, the vitality of the division, and their leadership as sources of power that can, however, be limited by Congress, the president, courts, and whistle-blowers. 34© 2010 The McGraw-Hill Companies, Inc. All rights reserved.