chapter 8

CHAPTER 8 THE FEDERAL BUREAUCRACY

CHAPTER 8: LEARNING OBJECTIVES  Understand the critical role that the bureaucracy plays in the implementation of federal policy

 Identify the bureaucracy as part of the executive branch of government organized hierarchically with standard operating procedures for doing business Copyright © 2012 Cengage Learning

CHAPTER 8: LEARNING OBJECTIVES  Explain “delegated authority” and describe the conditions under which such authority is granted

 Describe the oversight function of Congress over the bureaucracy  Understand why Congress has provided some bureaucratic units with administrative judicatory authority Copyright © 2012 Cengage Learning

CHAPTER 8: LEARNING OBJECTIVES  Describe how the federal bureaucracy has evolved over time, including substantial growth spurts as a result of the New Deal and Great Society programs and the Cold War

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CHAPTER 8: LEARNING OBJECTIVES  Explain methods for attempting to control or reduce the size and scope of the federal bureaucracy through privatization, devolution, deregulation, and accountability

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CHAPTER 8: LEARNING OBJECTIVES  Define the different types of agencies in the federal bureaucracy including cabinet departments, independent agencies, regulatory agencies, government corporations and the Executive Office of the President  Appreciate the large scope of the federal workforce and the civil service rules governing federal employment Copyright © 2012 Cengage Learning

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……: NOW & THEN

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NOW…  The “Reagan Revolution” aimed to reduce the burden of government.  Reagan found that he often needed to increase the size of government to accomplish many of his policy objectives.  He left office in 1989 with a much larger bureaucracy than the one he had inherited in 1981. Copyright © 2012 Cengage Learning

THEN…  Thomas Jefferson talked the talk of cutting the bureaucracy, but failed to walk the walk of containing its growth.  In his campaign, Jefferson stressed the need for “frugality” when it came to federal spending.  When he left office in 1809, however, the federal bureaucracy was much larger than the one he had inherited in 1801. Copyright © 2012 Cengage Learning

WHAT IS BUREAUCRACY?  Often refers to overgrown government, excessive rules and paperwork, or a burdensome process

 Despite negative connotations, it is necessary for any government  Laws must be enforced, programs must be administered, and regulations must be implemented Copyright © 2012 Cengage Learning

WHAT IS BUREAUCRACY?  Citizens are more likely to come into direct contact with the bureaucracy than any other part of government  The bureaucracy comes to symbolize what government is  Visit to an unemployment office  Check from the Social Security

Administration  Department of Motor Vehicles Copyright © 2012 Cengage Learning

People wait in line to speak to a clerk at a U.S. Social Security office.

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MAX WEBER’S SIX CHARACTERISTICS OF EFFECTIVE BUREAUCRACIES

1. Organized based on specialization, expertise, and division of labor 2. Hierarchical—chain of command

3. Standard operating procedures 4. Good record keeping—paper trail

5. Air of professionalism 6. Merit-based hiring and promotions Copyright © 2012 Cengage Learning

YOUR PERSPECTIVE … ON AMERICAN GOVERNMENT  You, Your Parents, and the Dreaded FAFSA (Free Application for Student Aid) Form:

 What do you think about FAFSA? Is it too cumbersome or tedious?  Is the federal government transforming a simple process into one that is too complex to be effective? Copyright © 2012 Cengage Learning

YOUR PERSPECTIVE … ON AMERICAN GOVERNMENT  Do you believe this form of “red tape” is necessary to ensure that colleges and universities can make fair decisions about financial aid for the nation’s college students?

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AMERICAN GOVERNMENT . . . IN POPULAR PERSPECTIVE:  MIXED VIEWS ON BUREAUCRACY  Americans exhibited mixed feelings about federal government expansion in response to economic problems during the recessionary period of 2007–09  Over 8-in-10 either disapproved of government’s expanded role or wanted it to retract once the recession was over Copyright © 2012 Cengage Learning

WHAT DOES THE FEDERAL BUREAUCRACY DO?  Most of the federal bureaucracy is contained within the executive branch  Executive power—to carry out, administer, and enforce specific laws  Primarily a presidential responsibility

 The president uses the bureaucracy to exercise executive authority

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POLICY IMPLEMENTATION  The process of carrying out a law requires translating the legislation into action

 Begin by developing regulations – rules guiding employees in carrying out the program or service  The rules are published in the Federal Register and enforceable by law Copyright © 2012 Cengage Learning

BUREAUCRATIC LEGISLATION  When laws are vague, agencies have administrative discretion—  Considerable freedom in deciding how to implement the law  Delegated congressional power—  The agency has power to make laws (administrative law)—power that is supposed to rest with Congress alone Copyright © 2012 Cengage Learning

CHECK THE LIST  SENATOR PROXMIRE’S TOP TEN GOLDEN FLEECE AWARDS  In 1975, U.S. Senator William Proxmire (D-WI) began taking aim at wasteful pork-barrel spending in the federal bureaucracy  The “Golden Fleece Awards” target bureaucratic agencies spending money on wasteful programs Copyright © 2012 Cengage Learning

PROXMIRE’S TOP TEN

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CONGRESSIONAL OVERSIGHT  Congress’s monitoring of bureaucratic agency performance—accountability  Options: Conduct investigations  Reduce or eliminate the budget  Refuse to confirm appointments  Eliminate the agency, or establish a new agency and shift resources and powers to it Copyright © 2012 Cengage Learning

BUREAUCRATIC ADJUDICATION  Determining the rights and duties of particular parties within the scope of an agency’s rules or regulations

 Most adjudication takes place in the court system  However, Congress has placed judicial power in some bureaucratic agencies  Example: EEOC Copyright © 2012 Cengage Learning

THE DEVELOPMENT OF THE FEDERAL BUREAUCRACY  During Washington’s presidency Congress created just three departments  Department of State—foreign affairs  Department of Treasury—fiscal affairs  Department of War—military affairs

 Later authorized hiring an attorney general and a postmaster general  Approximately 50 federal employees Copyright © 2012 Cengage Learning

THE DEVELOPMENT OF THE FEDERAL BUREAUCRACY  Mid-1800s: Congress created the Department of the Interior  1862: Department of Agriculture

 1870: Department of Justice  1884: Bureau of Labor

 1888: Commerce Agency  Early 1900s: Given Cabinet status Copyright © 2012 Cengage Learning

THE DEVELOPMENT OF THE FEDERAL BUREAUCRACY  FDR’s New Deal created a myriad of new federal agencies:  Examples:

 Social Security Administration  Securities and Exchange Commission

 Civilian Conservation Corps

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THE DEVELOPMENT OF THE FEDERAL BUREAUCRACY  1940—federal government accounted for 10% of the gross domestic product  1975—22%

 $9.5 billion spent on federal programs  1975—$332 billion

 About 700,000 federal employees  1975—2.2 million

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THE DEVELOPMENT OF THE FEDERAL BUREAUCRACY  Two factors fueling the massive growth 1. President Lyndon B. Johnson’s Great Society program of the 1960s 

Social and economic improvements

2. Cold War—U.S. and the Soviet Union, vying against each other for global influence 

Federal budget for defense programs

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AMERICAN GOVERNMENT . . . IN GLOBAL PERSPECTIVE:  ONE ITALIAN WRITER EXPERIENCES AMERICAN BUREAUCRACY

 In Ciao, America!: An Italian Discovers the U.S., Italian Beppe Severgnini compares his experiences with the Italian and U.S. bureaucracies  A “matador faced with a milk cow.” Copyright © 2012 Cengage Learning

GETTING CONTROL OF THE GROWING BUREAUCRACY  Privatization: replacing governmentprovided services with the private sector  Deregulation: eliminating government oversight and regulation  Devolution: shifting responsibility and power back to the states

 “Reinventing Government:” improved effectiveness and efficiency Copyright © 2012 Cengage Learning

THE ORGANIZATION OF THE FEDERAL BUREAUCRACY  Cabinet Departments  15 major administrative organizations; vary in size and importance

 Each is headed by a secretary except Justice (attorney general)  President nominates; Senate confirms

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AMERICAN GOVERNMENT . . . IN HISTORICAL PERSPECTIVE:  CONFLICTS WITHIN THE CABINET  1789–1793: U.S. Bank—Jefferson vs. Hamilton

 1977–1979: U.S. response to the Iranian hostage crisis—Brzezinski v. Vance  2003: militarily intervention in Iraq— Rumsfeld vs. Powell Copyright © 2012 Cengage Learning

INDEPENDENT AGENCIES  Not part of any executive cabinet department, but do report directly to the president

 Focus on a narrower scope of issues  Examples: NASA and the Small Business Administration  Agency heads are appointed by the president and confirmed by the Senate Copyright © 2012 Cengage Learning

REGULATORY AGENCIES  Implement rules and regulations regarding individual or corporate conduct related to some aspect of the economy  Not under control of the president  Run by independent boards or commissions that are not supposed to exert partisan influence  Examples: ICC, FTC, FCC, SEC, EPA Copyright © 2012 Cengage Learning

GOVERNMENT CORPORATIONS  Run like private companies even though they serve an important public purpose

 When revenue falls short, the government will often intervene to keep it in business  Examples: U.S. Postal Service; AMTRAK; Tennessee Valley Authority Copyright © 2012 Cengage Learning

THE EXECUTIVE OFFICE OF THE PRESIDENT  Managed by the Chief of Staff:  Examples: Communications Office; Council of Economic Advisors; National Security Council; Office of Management and Budget; White House Counsel; Office of Science and Technology; Office of the U.S. Trade Representative; etc… Copyright © 2012 Cengage Learning

THE FEDERAL WORKFORCE  Currently 2.7 million civilian personnel, excluding 1 million postal workers, and 1.5 million U.S. military personnel  Political Appointees and Career Professionals—About 8000 appointees (usually replaced by a new president)  7500 Senior Executive Service (SES) career professionals (usually remain employed) Copyright © 2012 Cengage Learning

THE CIVIL SERVICE  Majority of the federal workforce  Theoretically hired based on qualifications, and remain employees beyond the term of a president  Historically: the federal workforce began with “higher society” employees  Changed with Andrew Jackson’s “spoils system”—patronage Copyright © 2012 Cengage Learning

THE CIVIL SERVICE  1881—President Garfield’s assassination strengthened the reform movement in federal employment  Killed by a party worker who didn’t get a job

 Pendleton Civil Service Reform Act of 1883

 Hatch Act of 1939  Civil Service Reform Act of 1978 Copyright © 2012 Cengage Learning

GETTING A JOB IN THE FEDERAL GOVERNMENT  Office of Personnel Management (OPM): http://www.usajobs.opm.gov  Bruce Maxwell lists four advantages of federal jobs in his Insider’s Guide to Finding a Job in Washington: 1. 2. 3. 4.

Nation’s largest employer, numerous jobs Excellent job security Good wages and benefits Excellent pension benefits

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Pictured above is the “plum book,” which provides a listing of all job openings in the federal bureaucracy Copyright © 2012 Cengage Learning

NOW & THEN: MAKING THE CONNECTION  The federal bureaucracy has grown dramatically since George Washington’s administration

 As new presidents seek to advance new policy goals, federal departments and agencies have been created, modified, and expanded

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POLITICS INTERACTIVE!  Czars aplenty in the U.S. Government  Special bureaucratic leaders—usually enjoy close, working relationships with the president—no Senate confirmation  Presidents since FDR have made these special “czarist“ appointments  Obama, in his first 15 months in office set a record number at 38 Copyright © 2012 Cengage Learning

POLITICS INTERACTIVE!  Do you think that all high level appointments made by the president should require congressional confirmation before they can serve?  Should the so-called czars be formally confirmed by the Senate just as are all cabinet-level and many sub-cabinetlevel appointments? Copyright © 2012 Cengage Learning

POLITICS INTERACTIVE!  What accounts for the increased use of czars by Presidents George W. Bush and Barack Obama?  Has the growth and increased complexity of the federal bureaucracy created an atmosphere wherein presidents need a special advisor to coordinate agencies in a specific problem area? Copyright © 2012 Cengage Learning

Carol Browner, Assistant to the President for Energy and Climate

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