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14 Pump Primer How do the elected branches of government—Congress and the presidency—exert control over the federal bureaucracy? How might they exert more control over the bureaucracy so that the system will be more democratic?

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Page 1: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

14

Pump Primer

How do the elected branches of government—Congress and the presidency—exert control over the federal bureaucracy?

How might they exert more control over the bureaucracy so that the system will be more democratic?

Page 2: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert
Page 3: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

14

The Federal Bureaucracy

Page 4: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

Video: The Big Picture 14

http://media.pearsoncmg.com/ph/hss/SSA_SHARED_MEDIA_1/polisci/presidency/Edwards_Ch14_The_Federal_Bureaucracy_Seg1_v2.html

Page 5: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

14

Learning Objectives

Describe the federal bureaucrats and the ways in which they obtain their jobs

Differentiate the four types of agencies into which the federal bureaucracy is organized

14.1

14.2

Page 6: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

14

Learning Objectives

Identify the factors that influence the effectiveness of bureaucratic implementation of public policy

Describe how bureaucracies regulate, and assess deregulation and alternative approaches to regulation

14.3

14.4

Page 7: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

14

Learning Objectives

Identify the means of controlling the bureaucracy and assess the role of iron triangles

Assess the role of unelected bureaucrats in American democracy and the impact of the bureaucracy on the scope of government

14.5

14.6

Page 8: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

14

Biblical Integration

Regulations are essential because man as a sinner cannot always be trusted to do right, his selfish nature causes him to cut corners. Bureaucratic edicts may be burden- some, insensitive, and dictatorial, but man continues to prove that when left to himself, he does what is “right in his own eyes” (Judges 21:25

Page 9: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

Video: The Basics 14

http://media.pearsoncmg.com/ph/hss/SSA_SHARED_MEDIA_1/polisci/presidency/Seg2_Bureaucracy_v2.html

Page 10: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

Some Bureaucratic Myths and Realities

Civil Servants

Political Appointees

14.1The Bureaucrats

Page 11: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

Some Bureaucratic Myths and Realities

Americans dislike bureaucrats Americans dislike “faceless” bureaucracies

Bureaucracies are growing bigger each year Fact: Federal bureaucracy has shrunk

Federal Employment: 2.7 million; 2% of all civilian jobs State and local has grown larger

Federal shifted more responsibilities to states State and local Employment: 20 million

14.1

Page 12: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

Some Bureaucratic Myths and Realities

Bureaucracies are ineffective, inefficient, mired in red tape Fact: General Motors and the Catholic church are just as much

bureaucracies as the IRS Method of organization – no one has come up with a better

alternative

Bureaucrats work in D.C. Fact: Only 1 in 7 work in D.C. Many work in local offices (Post offices, Social Security

offices, etc.)

14.1

Page 13: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

Some Bureaucratic Myths and Realities

Bureaucrats work in D.C. Fact: Federal “civilian” bureaucrats

DoD (largest) = 28% of *civilian* bureaucrats Postal Service (second) = 22% Department of Veterans Affairs (third) = 11%.

14.1

Page 14: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

TABLE 14.1: Federal civilian employment

14.1

Page 15: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

FIGURE 14.1: Departmental service of federal non postal civilian employees

14.1

Page 16: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

Civil Servants

Diversity in the civil service More representative than elected officials and

appointees

Development of civil service system Industrial revolution and urbanization increased

demands Incompetent patronage employees were becoming

a practical problem

14.1

Page 17: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

Civil Servants

Development of civil service system Pendleton Act (1883)+

Created the federal Civil Service Hiring and promotion would be based on merit. Nonpartisan government service

Hatch Act (1939) Prohibits civil servants from participation in partisan

politics

14.1

Page 18: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

Civil Servants

Development of civil service system Patronage (spoils system)

“To the victors belong the spoils” of war or, in this case, elections

Candidate doling out jobs to friends and supporters after each election

Merit (used today) Skills and competence for performing the work

14.1

Page 19: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

FIGURE 14.2: Characteristics of federal nonpostal civilian employees

14.1

Page 20: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

Political Appointees

Plum Book 500 top policymaking posts

President must fill Nationwide search for talented and accomplished

individuals to fill these posts 2,500 lesser posts Ambassadorships go to contributors Geographical and Demographic balance

More important to modern presidents

14.1

Page 21: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

Political Appointees

Transient employees Last less than two years Dependent upon senior civil servants Less power than anticipated Take one for the team

Sometimes asked to take the fall for the

president in a scandal

14.1

Page 22: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

14.1 How many civilian employees does the federal bureaucracy employ today?

a. 5,100,750

b. 75,500

c. 2,700,000

d. 50,000

14.1

Page 23: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

14.1 How many civilian employees does the federal bureaucracy employ today?

a. 5,100,750

b. 75,500

c. 2,700,000

d. 50,000

14.1

Page 24: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

How the Federal Bureaucracy is Organized

Cabinet Departments

Independent Regulatory Commissions

Government Corporations

Independent Executive Agencies

14.2

Page 25: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

Cabinet Departments

Organization 15 cabinet departments Each headed by secretary Undersecretaries, deputy undersecretaries,

assistant secretaries, etc. Own policy area, own budget, own staff Bureaus (agencies) within departments

14.2

Page 26: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

FIGURE 14.3: Organization of the Executive Branch

14.2

Page 27: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

Independent Regulatory Commissions Make and enforce rules

Judge disputes over rules

Alphabet soup: FRB, NLRB, FCC, FTC, SEC, etc.

ICC (Interstate Commission), FRB (Federal Reserve Board), NLRB (National Labor Relations Board), FCC (Federal Communications Commission), FTC (Federal Trade Commission), SEC (Securities and Exchange Commission).

14.2

Page 28: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

Independent Regulatory Commissions

Governed by 5-10 commissioners with fixed terms

Appointed by president and confirmed by

Senate

Somewhat insulated from politics

Controlled by the industry they regulate

14.2

Page 29: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

Government Corporations

Different from other government agencies Provide services that could be handled by private

sector Charge consumers for these services, albeit at

cheaper rates

Tennessee Valley Authority (TVA) Established in 1933 (part of the New Deal) to provide

electricity to rural regions

U.S. Postal Service

Amtrak

14.2

Page 30: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

Independent Executive Agencies

Everything else Currently 45-50 Headed by Administrators; appointed by president

General Services Administration (GSA)

National Science Foundation (NSF)

National Aeronautics and Space

Administration (NASA)

14.2

Page 31: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

Fishermen on Lake Erie 14.2

We depend on bureaucrats to measure and protect the cleanliness of the water so fishermen like these can safely fish in America’s waterways.

What would happen if we left it up to the private sector to police its own pollution?

Page 32: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

14.2 Which of the following is an example of a government corporation?

a. Federal Communications Commission

b. NASA

c. U.S. Postal Service

d. General Services Administration

14.2

Page 33: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

14.2 Which of the following is an example of a government corporation?

a. Federal Communications Commission

b. NASA

c. U.S. Postal Service

d. General Services Administration

14.2

Page 34: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

Bureaucracies as Implementors

What Implementation Means

Why the Best-Laid Plans Sometimes Flunk the Implementation Test

A Case Study of Successful Implementation: The Voting Rights Act of 1965

Privatization

14.3

Page 35: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

What Implementation Means

Policies are not self-executing Laws are usually vague Bureaucracies work out the details

Implementation is critical Create new agency or assign new responsibility to

existing agency Translate policy goals into rules and guidelines Coordinate resources

14.3

Page 36: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

Why the Best-Laid Plans Sometimes Flunk the Implementation Test High expectations -> dashed hopes

Easy to pass-> harder to implement

Program design is the problem

COBRA Prevent Americans from losing their health insurance when

they change or lose their job. Insurance company must offer them coverage for 18

months Cost is so high, people can’t afford the coverage Could have been successful, if Congress passed a ceiling

limit on what insurance companies could charge

14.3

Page 37: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

Why the Best-Laid Plans Sometimes Flunk the Implementation Test Lack of clarity

Lack of resources

lack of funding (Head Start)

lack of personnel

14.3

Page 38: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

Title IX 14.3

Bureaucracies are often asked to implement vague laws. When Congress prohibited gender discrimination in college athletics, for example, it left it to bureaucrats to create specific guidelines. It took lawsuits filed by dissatisfied stakeholders to establish the law’s meaning.

Page 39: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

Why the Best-Laid Plans Sometimes Flunk the Implementation Test Lack of authority to do their jobs

Administrative routine or standard operating

procedures (SOPs)

Red tape

Complex rules and procedures must be

followed to get things done

14.3

Page 40: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

Why the Best-Laid Plans Sometimes Flunk the Implementation Test

Administrators’ dispositions depends on

disposition (outlook)• Street-level bureaucrats

– Police officers – give a ticket or a warning

Fragmentation 10 agencies involved with Welfare 32 agencies involved with Homeland Security Lack of trust and cooperation

14.3

Page 41: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

Illegal aliens and border patrol 14.3

So-called street-level bureaucrats such as law enforcement officers have considerable discretion in enforcing laws, such as whether or not to search someone who has been detained.

Page 42: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

A Case Study of Successful Implementation: The Voting Rights Act of 1965 Clear goals

Register African American voters

Adequate means to achieve them Federal registrars sent to counties Protected by U.S. marshals Federal penalties for obstruction

14.3

Page 43: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

Voter registration 14.3

The implementation of the Voting Rights Act was successful because it had a clear goal and it deployed federal bureaucrats, protected by federal law enforcement officers, who had the authority to do their jobs

Page 44: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

Privatization

Reinventing government Decentralize authority Room for innovation Performance incentives Make govt. look more like private sector

Contractors Private sector competition Theoretical cost savings Creates appearance of reducing size of govt.

14.3

Page 45: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

Video: In Context 14.3

http://media.pearsoncmg.com/ph/hss/SSA_SHARED_MEDIA_1/polisci/presidency/Seg3_Bureaucracy_v2.html

Page 46: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

14.3 Why does policy implementation sometimes fail?

a. Policy has contradictory goals

b. Not enough personnel to execute policy

c. Not enough funding to implement policy

d. All of the above

14.3

Page 47: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

14.3 Why does policy implementation sometimes fail?

a. Policy has contradictory goals

b. Not enough personnel to execute policy

c. Not enough funding to implement policy

d. All of the above

14.3

Page 48: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

Explore the Simulation: You Are Head of FEMA

14.0

http://media.pearsoncmg.com/long/long_longman_media_1/2013_mpsl_sim/simulation.html?simulaURL=9

Page 49: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

Bureaucracies as Regulators Regulation in the Economy and in

Everyday Life

Deregulation

Regulation is probably the most controversial task of bureaucracies. Regulations are necessary, but they are rarely popular with the regulated industries or individuals. The number of federal regulations in existence today is truly staggering, and they pervade every aspect of our lives.

14.4

Page 50: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

Regulation in the Economy and in Everyday Life Free enterprise is highly regulated

Many agencies regulate each company

History of regulation Virtually none State and local Federal after 1887 Interstate Commerce Commission Guidelines developed with industry Enforcement varies depending on agency and discretion

14.4

Page 51: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

Deregulation Perceived problems with regulation:

Raising prices -> alternative unsafe products Hurting America’s competitive position abroad

American products cost more Failing to work well – need effective

implementations

Hazards of deregulation Environmental pollution Collapse of finance and housing industries Mine disasters, etc.

14.4

Page 52: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

14.4 Which of the following is a motivation for deregulation?

a. Regulations save lives

b. Regulations cost money

c. Regulations make food safer

d. Regulations improve working conditions

14.4

Page 53: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

14.4 Which of the following is a motivation for deregulation?

a. Regulations save lives

b. Regulations cost money

c. Regulations make food safer

d. Regulations improve working conditions

14.4

Page 54: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

Controlling the Bureaucracy

Presidents Try to Control the Bureaucracy

Congress Tries to Control the Bureaucracy

Iron Triangles and Issue Networks

14.5

Page 55: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

Presidents Try to Control the Bureaucracy

Appoint agency heads who share their policy views and ideology

Issue orders Executive orders carry force of law

Increase or cutting agency budgets

Reorganize agencies

14.5

Page 56: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

Congress Tries to Control the Bureaucracy

Paradoxical relationship Provide services to constituents Problem-solve

Methods of Congressional control: Influence the appointment of agency heads Alter agency budgets Hold oversight hearings Rewrite legislation or make it more detailed to limit

discretion

14.5

Page 57: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

Iron Triangles and Issue Networks Definition

Policy making network consisting of a government agency, a congressional committee, and an interest group

Referred to as a policy (issue) network

Dominated policymaking for decades

Death of an iron triangle Ex. Nuclear power

–Environmental concern increasing–No new plants since 1978

14.5

Page 58: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

FIGURE 14.4: Iron Triangles: One example

14.5

Page 59: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

14.5 The three legs of an iron triangle consist of the regulated industry’s interest groups, Congressional committees, and:

a. Presidents

b. Relevant agencies

c. State legislatures

d. Industry lobbyists

14.5

Page 60: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

14.5 The three legs of an iron triangle consist of the regulated industry’s interest groups, Congressional committees, and:

a. Presidents

b. Relevant agencies

c. State legislatures

d. Industry lobbyists

14.5

Page 61: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

Understanding the Bureaucracy

Bureaucracy and Democracy

Bureaucracy and the Scope of Government

14.6

Bureaucracies make policy. You must understand that fact. It is a mistake to think that the federal bureaucracy is merely carrying out the wishes of Congress, the president, and the Courts.

Page 62: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

Video: Thinking Like a Political Scientist

14.6

http://media.pearsoncmg.com/ph/hss/SSA_SHARED_MEDIA_1/polisci/presidency/Seg4_Bureaucracy_v2.html

Page 63: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

Bureaucracy and Democracy

Unelected policymaking institutions Bureaucracy Courts

Impossible to elect millions of bureaucrats Representative of citizens (more than elected officials) Responsive to public interest

14.6

Page 64: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

Bureaucracy and the Scope of Government

Government out of control? Bureaucracy is naturally seeks to expand Shrunk over past 40 years

Too small? Job is to deal with social and economic problems

Bureaucracy cannot stop deregulation

14.6

Page 65: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

14.6 In the last 40 years, the federal bureaucracy has:

a. Grown enormously

b. Grown slowly and steadily

c. Shrunk to a shadow of its former self

d. Shrunk in relation to need

14.6

Page 66: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

14.6 In the last 40 years, the federal bureaucracy has:

a. Grown enormously

b. Grown slowly and steadily

c. Shrunk to a shadow of its former self

d. Shrunk in relation to need

14.6

Page 67: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

Video: In the Real World 14.6

http://media.pearsoncmg.com/ph/hss/SSA_SHARED_MEDIA_1/polisci/presidency/Seg5_Bureaucracy_v2.html

Page 68: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

Explore the Bureaucracy: What Puts the "Big" in Big Government?

14.6

http://media.pearsoncmg.com/long/long_edwards_mpslgia_16/pex/pex14.html

Page 69: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

Discussion Question

What does the federal bureaucracy do? Could we live without it? That is, could we save money by simply disbanding it? What are the consequences of deregulation?

14

Page 70: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

Video: So What? 14

http://media.pearsoncmg.com/ph/hss/SSA_SHARED_MEDIA_1/polisci/presidency/Edwards_Ch14_The_Federal_Bureaucracy_Seg6_v2.html

Page 71: 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert control over the federal bureaucracy? How might they exert

Advanced Level

Intermediate Knowledge

Understands why Bureaucracy can obtain power over legislative branch (and president)Understands the structure of the EOP and independent agenciesCan cite examples of regulatory agencies and the policies they affect

Understands why Bureaucracy can obtain power over legislative branch (and president)Understands the structure of the EOP and independent agenciesCan cite examples of regulatory agencies and the policies they affect

Basic Knowledge

Understands (with examples) the Executive Departments and the Independent AgenciesCan explain the powers and constraints of the bureaucracy. Can explain how bureaucrats are recruited, retained, and firedCan explain how bureaucracies fit into “iron triangles”

Understands (with examples) the Executive Departments and the Independent AgenciesCan explain the powers and constraints of the bureaucracy. Can explain how bureaucrats are recruited, retained, and firedCan explain how bureaucracies fit into “iron triangles”

Basic understanding of the definition of a bureaucracy Understands 4 basic types of bureaucracies: independent, regulatory, executive and corporate. Basic understanding of why bureaucracies can be influential in terms of policymaking

Basic understanding of the definition of a bureaucracy Understands 4 basic types of bureaucracies: independent, regulatory, executive and corporate. Basic understanding of why bureaucracies can be influential in terms of policymaking

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