Chapter FifteenBureaucracy and theAdministrative State

American Government and Politics: Deliberation, Democracy, and Citizenship

Chapter Fifteen: Learning Objectives

• Define bureaucracy

• Explain what bureaucrats do at headquarters and in the field

• Discuss, in general terms, the size and organization of the federal bureaucracy

Chapter Fifteen: Learning Objectives

• Analyze how bureaucrats and elected officials try to influence each other

• Understand control and oversight of the bureaucracy

• Appraise alternatives to current bureaucratic structures

Introduction

What is the bureaucracy?

Who are bureaucrats?

Has the United States turned into an administrative state?

AP Photos

What Bureaucrats Do

How does the bureaucracy affect your everyday life?

Do you have regular interactions with frontline workers?

Susan Walsh/AP Photo

Ken Lambert/AP Photo

What Bureaucrats Do

What does the bureaucracy do?

1. Provide information for deliberation on policy issues

2. Issue administrative rules which aim for accountability and deliberation

The Bureaucracy’s Structure and Size

What is the structure of the bureaucracy?

1. Cabinet departments2. Independent agencies3. Independent regulatory commissions4. Government corporations5. Government-sponsored enterprises

The Bureaucracy’s Structure and Size:Jurisdiction

Sometimes issues are complex which makes it difficult to determine jurisdiction.

“Turf wars” and coordination problems may make it difficult for the bureaucracy to do its job.

The Bureaucracy’s Structure and Size:Size of Government

While the number of people employed by the federal government has decreased in the late twentieth century, the number of people employed by state and local governments has increased.

Outsourcing is one reason for less federal government employment.

The Bureaucracy’s Structure and Size:Size of Government

Source: US Offi ce of Management and Budget, Budget of the United States GovernmentFiscal Year 2009—Historical Tables www.whitehouse.gov/omb/budget/fy2009/sheets/hist17Z5.xls

International Perspectives

The size of government

As compared to other large industrial democracies, the United States spends a smaller percentage of its GDP on the public sector.

Why?

Bureaucrats and Bureaucratic Politics

How does government define, measure, and encourage good performance by its employees?

How do these employees seek to influence policy?

Bureaucrats and Bureaucratic Politics

Today, most federal employees get their jobs through the merit system, which was created by the Pendleton Act.

Prior to the Pendleton Act, government jobs were granted through the spoils system.

Bureaucrats and Bureaucratic Politics

Until the mid-twentieth century, federal employees were not allowed to unionize. In 2008, approximately 33% of federal employees had union representation.

The political activities of federal employees are limited by the Hatch Act.

Pledges and Promises

Federal employees on strike

Most federal employees sign pledges and take oaths of office. These pledges relate to not striking against the government and not paying to receive their job.

Bureaucrats and Bureaucratic Politics:Performance

Federal employees may be released for poor work or misconduct but they do have the right to appeal, which may take months.

There are many concerns about waste and fraud in government as well as the bureaucracy’s performance.

Bureaucrats and Bureaucratic Politics:Organizational Culture

Bureaucratic performance may depend on organizational culture.

If an organization culture does not or will not adapt to different circumstances, failure of programs may be a consequence.

Bureaucrats and Bureaucratic Politics:Iron Triangles and Issue Networks

What are the differences between iron triangles and issue networks?

Explain the relationship between the bureaucracy and iron triangles and issue networks.

Bureaucrats and Bureaucratic Politics:Dissent and Resistance

What if bureaucrats disagree with the president’s directives?

• They may voice views internally

• They may go “outside” and work with issue network members

• They may resist implementing a policy

Bureaucrats and Bureaucratic Politics:Bureaucrats’ Sense of Citizenship

A survey of political appointees has shown that they perceive civil servants to be responsible and competent.

Civil servants and political appointees appear to have a positive working relationship.

Control and Oversight:Executive Branch

Two qualities for presidential appointees

1. Loyalty to president’s agenda2. KnowledgePresidents also control the bureaucracy

through drafting spending plans and reviewing draft rules with OMB and OIRA.

Control and Oversight:Inspectors General

An inspector general conducts investigations into bureaucratic actions.

Inspector generals often receive information from whistleblowers.

Control and Oversight:Congress

Congress provides oversight through

• Answering constituent concerns/complaints

• The Government Accountability Office

• The Congressional Review Act

Control and Oversight:Courts

Citizens may be able to enforce laws through “citizens suits” when the bureaucracy cannot or will not act.

One problem with litigation to solve problems is that courts may not be able to resolve technical issues that bureaucrats can.

Control and Oversight:Press and Public Opinion

The media often overlooks the bureaucracy but, when it does cover it, coverage may be exaggerated.

Interest groups may be more effective in getting the public to act on bureaucratic issues.

Myths and Misinformation

Katrina

While there were issues with the bureaucratic response to Katrina, the media reported a lot of misinformation about the disaster, which may have had an effect on the government’s response.

Control and Oversight:Markets

An alternative to bureaucracy providing services or regulating citizens’ behavior would be trying to achieve such goals through economic incentives and outsourcing.

The Special Case of the Military: Comparing the Military with the Civilian

The military has more clear performance measurements during times of war, but during times of peace it may use the same measurements the civilian bureaucracy uses.

The “military-industrial complex” has been important in American political history.

Bureaucracy and Deliberative Democracy

New technology may allow for more of a public role in deliberation.

As organizational cultures change and more people see government employment as a way to serve the country, more opportunities for deliberation may emerge.

Deliberation, Citizenship, and You

E-Government

The Internet allows citizens the opportunity to interact with the bureaucracy in many ways, whether it is filing a complaint or registering opinion on proposed rules.

Summary

• The bureaucracy carries out the government’s work

• Bureaucrats interact with citizens and other political actors in their jobs

• Many ways to control the bureaucracy