bureaucracy. learning objectives: bureaucracy defining bureaucracy historical development of the...

BureaucracyBureaucracy

Learning Objectives: BureaucracyLearning Objectives: Bureaucracy

• Defining Bureaucracy• Historical Development of the Bureaucracy• Politics vs. Administration• The President is not their boss…• Political Control of the Bureaucracy• Departments, Agencies, and Government Corporations• How the Texas “fractured” Executive impacts the state

bureaucracy

Key Terms: BureaucracyKey Terms: Bureaucracy

• Spoils System• Merit• Bureaucrats• Whig Theory• Garfield Assassination• Civil Service• Pendleton Act of 1883• Politics-Administration Dichotomy• Devolution• Privatization• Glass Ceiling• Cabinet Departments• Independent Agencies• Adjudication• Administrative Discretion

•Hatch Act 1937

•Administrative Procedures Act 1947

•Neutral Competence

•Reinventing Government

•Quasi-Judicial Power

•Regulatory/Policing Power

•Civil Service Reform Act 1978

•Senior Executive Service (SES)

•Office of Personnel Management

•Collective Bargaining

•Affirmative Action

•Independent Regulatory Agencies

•Government Corporations

•Rule-Making

The BureaucracyThe Bureaucracy

• What is Bureaucracy?What is Bureaucracy?– A complex, hierarchically arranged organization composed A complex, hierarchically arranged organization composed

of many small subdivisions with specialized functionsof many small subdivisions with specialized functions

– Bureaucracy means “rule by officialdom”Bureaucracy means “rule by officialdom”

– Bureaucracy is complexBureaucracy is complex

– Bureaucracy is hierarchicalBureaucracy is hierarchical


• Five Functions of BureaucratsFive Functions of Bureaucrats– Implement the law Implement the law

– Provide expertiseProvide expertise

– Provide research and information to the President Provide research and information to the President

– Provide research and information to CongressProvide research and information to Congress

– Quasi-judicial powers and responsibilitiesQuasi-judicial powers and responsibilities


• A few myths about BureaucratsA few myths about Bureaucrats – They’re appointed by the President and can be fired by the They’re appointed by the President and can be fired by the

President President

– Only about 9,000 out of 3,000,000 civilians employees of the Only about 9,000 out of 3,000,000 civilians employees of the Federal Government are appointed by the presidentFederal Government are appointed by the president

– Of those, only about 3,000 – 5,000 could conceivably be fired Of those, only about 3,000 – 5,000 could conceivably be fired by the President (unless they massively violate the conditions by the President (unless they massively violate the conditions of employment – PATCO strike of August 1981)of employment – PATCO strike of August 1981)


• A few more myths about BureaucratsA few more myths about Bureaucrats… … – They’re paper-pushers They’re paper-pushers

• Only about a half million government employees have characteristically Only about a half million government employees have characteristically bureaucratic positions such as clerk or general administrator bureaucratic positions such as clerk or general administrator

• The government employs about 147,00 engineers and architects, 84,000 The government employs about 147,00 engineers and architects, 84,000 scientists, and 2,400 veterinarians scientists, and 2,400 veterinarians

– They work in Washington DCThey work in Washington DC• Only about 10% of government civilian employees work in Washington Only about 10% of government civilian employees work in Washington

D.CD.C

– Most work in the federal governmentMost work in the federal government• About 22% of government employees work for the federal governmentAbout 22% of government employees work for the federal government


• History of the BureaucracyHistory of the Bureaucracy– The Whig Theory (1780s – 1828)The Whig Theory (1780s – 1828)

• The idea that public service was domain of an elite class.The idea that public service was domain of an elite class.

• Families had a tradition of public service.Families had a tradition of public service.

– The Spoils System (1828 – 1883)The Spoils System (1828 – 1883)• Andrew Jackson used government jobs or “patronage” to reward Andrew Jackson used government jobs or “patronage” to reward

supporters and to remove elitists from the bureaucracysupporters and to remove elitists from the bureaucracy


• History of the BureaucracyHistory of the Bureaucracy– The Civil Service System (1883 – Present)The Civil Service System (1883 – Present)

• Garfield’s Assassination 1881Garfield’s Assassination 1881

• The Pendleton Act (Civil Service Reform Act of 1883) established the The Pendleton Act (Civil Service Reform Act of 1883) established the principle of employment on the basis of merit and created the Civil principle of employment on the basis of merit and created the Civil Service System to oversee the hiring and firing of government Service System to oversee the hiring and firing of government employees employees

• Professor Max Weber’s ideas (1870s)Professor Max Weber’s ideas (1870s)

• Professor Woodrow Wilson’s ideas (1880s)Professor Woodrow Wilson’s ideas (1880s)

• The Progressive Era and Bureaucratic ReformThe Progressive Era and Bureaucratic Reform

• Calls for “neutral” competence and expertiseCalls for “neutral” competence and expertise


• History of the BureaucracyHistory of the Bureaucracy• The Civil Service System (1883 – Present)The Civil Service System (1883 – Present)

– New Deal reformsNew Deal reforms– The federal bureaucracy grew tremendouslyThe federal bureaucracy grew tremendously– FDR and political control issuesFDR and political control issues– Hatch Act of 1937Hatch Act of 1937

• Post WWII and beyondPost WWII and beyond– The need for technological expertiseThe need for technological expertise– The need for controlThe need for control– The “thickening” of governmentThe “thickening” of government


• History of the BureaucracyHistory of the Bureaucracy• The Civil Service System (1883 – Present)The Civil Service System (1883 – Present) • Civil Service Reform Act of 1978 Civil Service Reform Act of 1978

– Jimmy Carter’s “Greatest Domestic Policy Achievement”Jimmy Carter’s “Greatest Domestic Policy Achievement”

– Created the Office of Personnel ManagementCreated the Office of Personnel Management

– Revised and expanded the Grade (“GS”) systemRevised and expanded the Grade (“GS”) system

– Created the Senior Executive ServiceCreated the Senior Executive Service


• Issues for bureaucracy today:Issues for bureaucracy today:– Diversity and ”Glass Ceiling” IssuesDiversity and ”Glass Ceiling” Issues

– Technological CompetenceTechnological Competence

– PrivatizationPrivatization

– ““Devolution”Devolution”

– ““Re-inventing Government”Re-inventing Government”


• Which branch controls the bureaucracy? Which branch controls the bureaucracy? – The Executive branch with chief executive?The Executive branch with chief executive?

– The Legislative branch with the budget?The Legislative branch with the budget?

– The Judicial branch with the judges/justices that interpret the The Judicial branch with the judges/justices that interpret the Constitution?Constitution?

• Answer: All and None…Answer: All and None…


• Political Control of the BureaucracyPolitical Control of the Bureaucracy• Congressional mechanismsCongressional mechanisms

– Power of the pursePower of the purse– Revision of empowering or limiting statutesRevision of empowering or limiting statutes– Senate approval of certain appointeesSenate approval of certain appointees– Threats of hearings and investigationsThreats of hearings and investigations– The power to create or destroy agenciesThe power to create or destroy agencies

• Presidential mechanismsPresidential mechanisms– Appointment powerAppointment power– Budget proposalBudget proposal– Reorganization of bureaucratic structureReorganization of bureaucratic structure– Executive ordersExecutive orders

• Judicial mechanismsJudicial mechanisms– Judicial ReviewJudicial Review


• The Shape of the Federal BureaucracyThe Shape of the Federal Bureaucracy– Cabinet Departments Cabinet Departments

– Independent AgenciesIndependent Agencies

– Independent Regulatory Agencies/CommissionsIndependent Regulatory Agencies/Commissions

– Government CorporationsGovernment Corporations

• Major operating departments of governmentMajor operating departments of governmentheaded by the “Secretary of...” except Justice, headed by the “Secretary of...” except Justice, which is headed by the Attorney Generalwhich is headed by the Attorney General

The BureaucracyThe Bureaucracy• The Executive Branch Departments in order of creation:The Executive Branch Departments in order of creation:

– State (1789)State (1789)– Defense (1789)Defense (1789)– Treasury (1789) Treasury (1789) – Justice (1789)Justice (1789)– Interior (1849)Interior (1849)– Agriculture (1862)Agriculture (1862)– Commerce (1913)Commerce (1913)– Labor (1913)Labor (1913)– Health & Human Services (1953)Health & Human Services (1953)– Housing and Urban Development (1965)Housing and Urban Development (1965)– Transportation (1966)Transportation (1966)– Energy (1977)Energy (1977)– Education (1979)Education (1979)– Veterans’ Affairs (1988)Veterans’ Affairs (1988)– Homeland Security (2002)Homeland Security (2002)


• Independent AgenciesIndependent Agencies– Administered by a presidential appointee with no fixed termAdministered by a presidential appointee with no fixed term– Responsible for narrower set of functions than departmentResponsible for narrower set of functions than department

• Some are housed in departmentsSome are housed in departments– Social Security Administration is part of HHS, Coast Guard Social Security Administration is part of HHS, Coast Guard

is part of Transportationis part of Transportation

• Others are independent of any departmentOthers are independent of any department– Examples include The Central Intelligence Agency (CIA) Examples include The Central Intelligence Agency (CIA)

and the National Aeronautics and Space Administration and the National Aeronautics and Space Administration (NASA)(NASA)


• Independent Regulatory Agencies and Independent Regulatory Agencies and CommissionsCommissions

– Independent of any department or agencyIndependent of any department or agency

– Each headed by a group of 5 - 10 commissioners who are Each headed by a group of 5 - 10 commissioners who are appointed by president to fixed terms and not subject to appointed by president to fixed terms and not subject to removal by presidentremoval by president

– Example include the Securities and Exchange Commission Example include the Securities and Exchange Commission (SEC) and Federal Communication Commission (FCC)(SEC) and Federal Communication Commission (FCC)


• What Government Agencies and What Government Agencies and Commissions Do:Commissions Do:– Agency investigationsAgency investigations

– Rule makingRule making

– AdjudicationAdjudication

– Informal actionsInformal actions


• Government CorporationsGovernment Corporations – Permits organizations to use businesslike method and remain Permits organizations to use businesslike method and remain

politically independentpolitically independent

– Run by boards of directors appointed by President to long Run by boards of directors appointed by President to long termsterms

– Examples include the Federal Deposit Insurance Corporation Examples include the Federal Deposit Insurance Corporation (FDIC), the Student Loan Management Authority (SallieMae) (FDIC), the Student Loan Management Authority (SallieMae) and the U.S. Postal Service and the U.S. Postal Service


• Reasons for the growth of Federal Reasons for the growth of Federal BureaucracyBureaucracy– We have over 3 million federal bureaucrats paid for by the We have over 3 million federal bureaucrats paid for by the

taxpayerstaxpayers– Issues and problems require more expertise today because Issues and problems require more expertise today because

society and technology is so complexsociety and technology is so complex– The size of our nation in both geographic size and population The size of our nation in both geographic size and population

leads to more bureaucratsleads to more bureaucrats– Americans demand more services from their government, Americans demand more services from their government,

requiring the use of more people to provide those government requiring the use of more people to provide those government services services


• Bad Things That Bureaucrats Do…Bad Things That Bureaucrats Do…– Bureaucracies will try to expand authorityBureaucracies will try to expand authority

– Bureaucracies will try to develop political constituencies Bureaucracies will try to develop political constituencies

– Bureaucracies will fight over jurisdictionBureaucracies will fight over jurisdiction

– The “spend it or lose it” mentalityThe “spend it or lose it” mentality

– Bureaucracies will expand their internal workBureaucracies will expand their internal work

– Bureaucracies will become paternalistic and aloofBureaucracies will become paternalistic and aloof– ““The Peter Principle” The Peter Principle” – incompetence always rises to the top… – incompetence always rises to the top…

– Who’s to blame when there’s a problem?Who’s to blame when there’s a problem?

Texas BureaucracyTexas Bureaucracy

• Appointed Boards and CommissionsAppointed Boards and Commissions• Administrative DepartmentsAdministrative Departments

– Responsible for implementing policies:Responsible for implementing policies:

• Texas Department of Criminal JusticeTexas Department of Criminal Justice

• General Land OfficeGeneral Land Office

• Texas Department of AgricultureTexas Department of Agriculture

• Lottery CommissionLottery Commission

• Texas Department of TransportationTexas Department of Transportation


• Appointed Boards and CommissionsAppointed Boards and Commissions• College and University Boards of Regents (e.g., UT, A&M, etc.)College and University Boards of Regents (e.g., UT, A&M, etc.)

– Nine members serve six-year overlapping termsNine members serve six-year overlapping terms

• Licensing Boards (e.g., Nursing, Cosmetology)Licensing Boards (e.g., Nursing, Cosmetology)– Licenses various professionsLicenses various professions

• Regulatory Boards (e.g., PUC, TEQC)Regulatory Boards (e.g., PUC, TEQC)– Regulates various industriesRegulates various industries– Set rules for operations pursuant to lawsSet rules for operations pursuant to laws

• Social Service Agencies (e.g., CPS, Texas Employment Commission)Social Service Agencies (e.g., CPS, Texas Employment Commission)– Promotion of certain social groupsPromotion of certain social groups

• Promotional and Preservation Agencies (e.g., Texas Historical Promotional and Preservation Agencies (e.g., Texas Historical Society)Society)

– Provides economic development or preserves the state’s historical heritageProvides economic development or preserves the state’s historical heritage


• Administrative Politics - The LegislatureAdministrative Politics - The Legislature– All state agencies that are not established by the Constitution All state agencies that are not established by the Constitution

are creations of the legislatureare creations of the legislature

– Sweeping legislative powerSweeping legislative power

– The difficulty of vigorous oversightThe difficulty of vigorous oversight

– Oversight mechanismsOversight mechanisms

– Sunset reviewSunset review

– Legislative Budget Board Legislative Budget Board


• Administrative Politics - The GovernorAdministrative Politics - The Governor– Appointment powerAppointment power– Far reaching but limitedFar reaching but limited– Budget powerBudget power– The line-item vetoThe line-item veto

• Administrative Politics - Interest GroupsAdministrative Politics - Interest Groups– Every program and the agencies that administer them have several interest Every program and the agencies that administer them have several interest

groupsgroups– Rallying supportRallying support

• Administrative Politics – BureaucratsAdministrative Politics – Bureaucrats– Bureaucrats have particular goalsBureaucrats have particular goals

Review QuestionsReview Questions

• What was the Spoils System? Why was it so detrimental to government?

• What was the Pendleton Act? What was the Hatch Act? How do these two acts impact the federal bureaucracy?

• What is the difference between a cabinet department, an independent agency, a independent regulatory agency, and a government corporation?

• What was the Civil Service Reform Act of 1978? Why Did President Carter think it was so important?

• What is Reinventing Government?

Discussion QuestionsDiscussion Questions

• Why was Garfield’s Assassination so important in understanding the reform of the Federal bureaucracy?

• What were the political implications of removing bureaucrats from politics? Should we be concerned about the partisan politics of the folks in the Driver’s License office?

• What exactly is Reinventing Government? What were the accomplishments of the Vice President Gore’s National Performance Review?

• What impact do issues like diversity, affirmative action, and the glass ceiling have on making bureaucracy at all levels reflect the face of America?

• Do regulatory agencies have too much power? Consider the curious case of Martha Stewart…

bureaucracy. learning objectives: bureaucracy defining bureaucracy historical development of the...

Documents

federal bureaucracy

bureaucracy history

bureaucracy departments

bureaucracy politics

bureaucracy issues

complex bureaucracy

officialdom bureaucracy

state bureaucracy slide