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C H A P T E R I I - A D M I N I ST RA Tl 0 N D E S I G N

Adn'11 '' l ' t r ..'t t ion OOSiy n

A PP EN DI X 11. 1 Slides Prepared by Roger Porter

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lbt Whjl~lfoqK M • Coonlloatln&ComQic,.; • AI the si~ wl JOOPO l)f goverrunttll tn.ve gJ:'9'Wn, to blve the roles

11nd ~lbllltlei: ofttie White HOt1116S'Iil«to c:oordlnatc the bq,e '1urnbcrof departu1ents and agen(ft.'t that b~ be4.!:n ~oti!d: and the Ill rae ntlDlbflr of llntllit!l: in the &.ttudve O(fi.a: ori.M l~ident..

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• Historically, presidents ba"' bed only modcotlhod slaffs. • 1'he Brownlow Committee, comrnlssioned by Franklin D.

R()061\vell, began II$ rtp<>rl wilh the melllillabla words, 'The P~ident needs help.."

• Its r.port k<lto lhe ertntion In 1939 of tbe El<eculive Ofli<:e ol t.he Pt<Sident, 1 eollecllon of entitles ~ed to KM! tbe l'reoident in pr<Mdin& leaderoh\p and diroclion to the CJ(CC\Jti\'C bra.ocb r/ &M'emmeot.

• 11"~ Bureau. or the Bodgct, etta ted In l92t by Congress to ha\•e nspoO$ibUity (or M&"i$ting the Pt'OIJident in prt))GJ;u.ga unirted fwtnl budget waS<>tigl!Uilly placed In the O.partment of !he 'l'loalllly. In 1939. it wasllon$kmd to tbe newl)'-<naled E:....,b\'1! otllt8 oftbe Pre&ldent.

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• Ensure that the administration's policies 8!'1l comp.......,oalve - that major issues an: not falling between the ctacl<s.

• Ensure that the administration's policies are coherent - that initiatives of one department are not undercutting thooe of other departments.

• Ensure that the S)'lltem for 1dvising the preoiden.t prodU<:eS i.nf'ormed. decioloDS.

._ ........ • Ensure that dedsiou are implemeated. consistent with the intent of the President L

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R. 0 M N E Y R EAD I N E S S P R. 0 J E C T 123

ROMNEY RE A DINESS PRO J EC T

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• The White House Staff is the entity most responsible fo.- ensuring that tho admini.nration's policies are oomprehensi..,and coherent, that decisions ano infonned, and that those deeisions are successfully implemented.

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• Oli I ..... -• sa.J~ty

• a:t 1 o s • A4<411"f

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• The om .. of the White HoU$CChlcfofStnffhas lnoreulngly token on the responolbilil,y for coordlnath~& the elements ofthe White House staff and coordin4ting ~o the White House staff and other eotities in the Kxecut!VIl om.. of the President.

• Slnee the 199<)$. the Whlle.HOIISe Chief of swr l)111eally has hod two deputies - one to ovorsee tho care and feeding offices ond one to ooordlnntetho policy formulation and pacluo&l"' officu.

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Admmi sh ation Design

The White House staff is similar to a holding company with a !urge collection of offices, each of which has Its own set of:

• R""J>Onsibilitles • Constituents • Work Plows

It is a boldlng company with three main divisions.

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Deputy Chitf urSh'ff (PI>Iky)

124 J CHAPTER I I - ADMIN I ST RATION DE S I G N

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• Many White House staffs include individuals with general portfolios wbo often have a special rtiationsbip to the Pl'esident and are 001 associated with any particular office.

• The Obama White House currenUy h..., three such senior staff members:

eo...dcw to the l'lulolenl CP<ttt Roulo) Se-olor .A.tMsor (Val4:u-i41 Jftn'C'tt)

Senior Advisor (!>ovid P!oulfe)

Q;ruOJclur • Ntlu •a aii·OW'P'M poliey ud polllbled...;.llt

• ~ulbtr.widtat'salttYIP • &-.tilts u 1 1-"lfli'n: nqol»tot • Sef\ft u ... ~ IJfi'Oblltall

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I J>residenL'l since FOR hove >~dopted one oft he following organizational arransements. Four a out as most viable for the modern presidency.

• Cellt.;n' l•tlefiletll:• • Strong White Hoo!le Chlef of Staff • Chief of Staff as Chief Operating Officer • Chief of Staff as COO and Strategist • Chief of Staff as COO and Strategist Plus

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CHAPTER I I - A 0 M I N I STRATI 0 N 0 E S I G N

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Adrn1n1 c;t r ~1t 1011 0€'stqn

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Some presidents have determined not to appoint a While House Chief of Staff, choosiDg"ins~<~d to undertake much of the necessary cool"dinalion ofthc White House staff themselves. This was true of:

Franklin Roooevelt Harry Truman Jimmy Carter (early in his term)

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R.O MNEY RE ADIN ESS PROJ EC T I 125

R.OMNEY R. EAO I N ESS P R.O J EC T

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Se\-eral presideots ha~ relied on an informal or fonnal arrangement among a small number of S<lnior ad-risors to manage the Wbite House staff. Examples include;

Jobn JC.onnedy l.yudon Johnson llrm•ldl!npn Bill Clinton

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,......., ...... iwt ' atllookd to\Wr W'tale HWflt Qfef fli$taff Co~-lbt-loooofobo Wllioo ""'""· • OvooiHemdent (unetionlua of White Houso•fAil ~tg S.,t.t-11wPc , , _.WH...., ..

• Qan!y ~l'n.f!I'IU and res:ponsibrtldes Sot\ 01111* on. W\1 .-It it "~••It t. w!I.C

· flaJhale ..tal coordartation am:M li•uunthlltlrM.c.rear~QtlkN ' te~b'

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toudditlon .., preoiden10loolci"' to tbtit au.torswhs 111 elreeti~ COO & Stntesist ()!odels), tome presidents haY$ also hoavl()' utillted tbelr Chit! of Staff to ser.-e u an emissaly and De&Otiator lA odUMa& tloelr~ • Serves a. the Prtsldcnt'.alter ego

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• Se""" as o legl$lari\ie negotiator PrtJif ltt-..r ....... (liefol$b."f~ ctspCHdbiitilW oo ...., tq pitt'tt ofttphti011

• Sel'IIU as on admlnbtnlion opokamon Pt 1 I ,. '-'t ~._ ....... WWbt He.eewetol31d'. 1 ~~- • decWoft t!M!;yoft:en hi!\~ come to ITJf'd

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l Admlnl'\tr.lt •On o~~i~JJ'

Other presidents ba'-e delegated many of tbese responsibilities to a strong Chief of Staff.

Dwight Eaenhower (Sherman Adams) Richard Nixon (H.R. Haldeman, Alexander Hals) Ronald Reagan (Donald Regan) Geo~e H. W. Bush (John Sununu)

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In addition to presidents looking to their Chief of Staff as an effe<:tive COO (Model 4), some presidents have also relied on their Chief of Staff to oversee lhe development of the adruinb"tratiun's .,...,..n stratezy.

This strategy invariably inYOives:

• Determining policy priorities • • Building ond spending political capital • Deploying legialati,..,, administrative, and rhetorical means to achieve the President's policief

White House- Departmental Relations

126 I CHAPTER. II - ADMINISTR.AT ION DESIGN

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C H A PTE R I I - A 0 M I N I S T RAT I 0 N D E S I G N

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r • 8Yeoyodmln!wotion hasfor.edthebsueoffindiog lbe I I • 'lhololeoofW!>io•H....-Icdm...,_<lO\l,..,.WJl.!l•,..,"'ooto appropriate rtla(oo!Uhip be'-• the \llh!te II owe and U.. J)O]jcy tluLOBof Fro D)! In D. Roole>~ll"•-oo. 1'be lint eXtamve depa:mncn1S and agencies. oftline-establ!hcdbyattrtute.in •947 - wu lbc Nationa!S«ari'Y

• ~resideotsdedaretheitcntb~n1t'oraronnot 1 • ~~Uolsbowa»nyooundbtoba\-e. Toofewcankadto eab1 . &QYO:mment in whieh they rely heavily Oil cabinet pol.cyO¥t~ roran lndMil\ta) rou~. Too 1narur c:t~n oonl.ribute secretarfes as tbc.lr principal Uc:u.ttunts. Tho effon Sn I 1 10 mntua-lou ~~~wbo b responsible ror ~bot\ and diffieulty In eob-~entisllSitolly,short·llved. (C.rtcr --'-·""'·-• des. Admlnlatratlon) yo ....... _

I • Som.e adminl~tntlous !Jf~'t: ft])Uilntaltd wilb a~ .. ~ • Otherpres,idente &.ravitate toward t1 d o mlnunt White IUU'abet. ~hlldeig!t difft:rut c.btnct·lC\'t'l JlOlicy eo~.m~

D ou.x .UfT: leaYUll deputm.tnts and a&mcies feeling during bllfirilt tcml. nesfecttd and sometimes ignored. (Nixon Adm.luinnttfoo) • ~ott baYea:ffielll on three - Natiol...t Socurity Policy~ Dvnwstle

• Some presidents sedt a woridnl pa:rtnenh ip, enEadng the I PolJ\"Y,mtd F.coJ!.d'fe Policy. For a time. Geoqe w. Bush added • rt.SOUJ"t'('$ artd e1eRCJtl~ in dCJK\nments and ~eucleS Whne fourth eoutltil Q& wllh H.omebnd S«ori~. "nnil wu later ooordlnatin& the devclopmenl of policy by Wrote HoUieolod fo1dcd Into U110 N'ntlonal Sect1rit)' Council. coundh:. • 1'be thrt.or. c<~U.adJ model -=mt "> wctk wd1 tn ~~a

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• A central objective for every president is leading a unified adminlstralioo In dealing with the Congress, the press. and organized interest gronJIIl.

• Achieving this unity requires careful attention to five key dimensioru of the relationship between the While House and depn~'lments and agencies. Budg~. koplatM. deannce, and ~sulatory review Policy (l)nnulatton PcrsonneJ L<;islat:ive \Woon Press rtlatloos

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• The Office of Manngement nnd Budget (OMB) and it8 predeeell$0r the Bureau of the Budget bnve had re5J><>ll$ibility for producing a unified federal budp that the president transmits to Congress,

• OMB also has responsibility for l~ative clearance of testimony by adminiStnition officials and lesislation sent by the adminiSI"ration to Congr'""'.

• OMS's replatory review p<OCe$$, established by e><ocotive order, approves major regulations issued by departments and agencies,

RO M N EY READ I NES S P RO) ECT 127

R.OMNEY READINESS PROJECT

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• The principal vehicles for advising the president on 1 mi\Jor policy decirions are the National Security

I Council, the National Economic Council, and the Domestic Policy CouncU.

I • Each cabinet department or agency is represented on at least one of u.- coundls, providing them an

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Admtnistr<lt;on Design

• Presidential appointments are of intense interest to the While House and to departments and agencies. The apr.olntment of ambii.SS8dors Is a classic examp e or a frequent conflict oftbese interests.

Some admlnlstf'ttiona ha•oe allowed cabintt I«J'etaries gut la~wdeiD _.,b!iCJ lheirdepanmtntal ..,..,.,.(Cotter Adratn~r4tion)

l avenue for bringing issues to the president througb a process that permits him to have tbe benefit of a full I range of views and considerations in making an

Other admhtislftlloos """"•ouyut;pt Wbi,. Houoecoc>tld in aub-elbtnet level appointments. A lhlrd •PPfO"<h lm'>IY<S ..,.blbhln&a workina partUIOblp lo wbleb tbe Wbbe House O!fice of Presidential Personnel and the ~"tivcdi!J)tlrttnent have a mutual veto. In pmcttoe, thls

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• Tbe White House Offiee of Legislative Affilirs l.• small relative to its counterpart in many departments.

• Given the modest sit.e of tbe White House legislative affairs staff, it is crucial that the departmental legislative liaison offioos work closely with ft.

• This genenlly involves weekly reports and careful monitoring by tbe White House so tbat the efforts by department1\l personnel reflect presidential priorities.

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I I • Given the Intense nature of media scrutiny, it l.s essential that the White Honse Press Office and tbe

I White House Communicatiora Office work closely and efl'ectively with their oounterpnrts in I 1 departments and agencies.

• This is reflected in a daily conference call led by the 1

1

I White House Press Office with th~jr counterparts in I departments and agencies, communicating to them the "line oftbe day" and ensuring that the 1

1 I administration does not"atep on· Its own stories.

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To be fully effective, an administration must be more than merely the sum ofits parts.

Cablnel secretaries often find the reality ofthelr role less than Ol(j)ected. Many feel infrequently consulted and lacking the dlreellon nnd occountability that wnuld belp them contribute more to achieving the President's objecllves.

128 I C H APT E R 1 l - ADM l N I $T RAT I 0 N DESIGN

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OM l"l"i'ilo-~.sdr. tbiJddidt 'll'l:lllilld't. tt tdll ~ ~tiOM 1D the of &be DcptR)• Whit& Hout Q.id ol Qaff for Pdley.

I Thia indM<Jual woul hll\<t.dlreo n~ rt!I]XHII'ilbilitl~

Provklf. ~ftb.uecl accou,nt.wl~ fweaW.net ~ts b)' S)liittm•tiaiiY ~• the lf'frtj111 oftbdrde"P."rtment.ln rot~trlbutlng lo tb~ Pr'tlitde.nt'a priori~ ontl oldeciiYt!$;

Help tna'ltorc:.W.od. offkc:rs do 1M3' .. .._ t:lnk piCwiou ..,.,_.Mc:Ot """kactl and

• 8uUd lml)lro\'fd ft'iadoAJhlps bf IQokln.a out for the lntu'elb of cab! ntt Ollktah •nd. MJP&ata them Ita part ~ M act:..lnlttn~tfon ~

~ l'JI_" ·~If(lllltfbtduti•~ftoMMnto/.~f.'UWidlt~ND:, ~·~~ kn• ,...,IBI1Jillal'lir-..fl'IIIO'*W..r.,.o~li.t.W............,..,~

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Adtnlnbtmtionl haw varied widely lo thequ~tyol their td1tkl0$bipa with the oadon,ll KO\WOOI'I. An Mllan<:ed White Houac: Offie4 of tnt~O\'tmmtlntll Rclatlons can help buikt • ~011~ oollfUUC:tiTe. and productlYe rdalioo.Shlp.

• 'lbo he~ of lhc Office of 1nlt~O\'e'nUUentnl AJTol111 would be no AN!ll3nl to the Ptaid.ent a~&imaltv •~"t:tP~~.:wd (ORK'f'

--wbo..,;o,s p>d will> ""-'-both p.n!eo.

• He 'o\~uld ~K:th"'elr ef'll,ll&e IO'VtfiiOt'l in rupoodb'll to and ~"I 1ttmti0o to tbd.r conan&

• He would 11erve a'la oondult for thelrld~a.s reprdlng poll.cy Initiatives.

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R 0 M N E Y R E A D I N E S S P R 0) E C T 129