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Transcript of 14 Pump Primer How do the elected branches of government— Congress and the presidency—exert...
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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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14
The Federal Bureaucracy
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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
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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
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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
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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
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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
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Video: The Basics 14
http://media.pearsoncmg.com/ph/hss/SSA_SHARED_MEDIA_1/polisci/presidency/Seg2_Bureaucracy_v2.html
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Some Bureaucratic Myths and Realities
Civil Servants
Political Appointees
14.1The Bureaucrats
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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
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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
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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
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TABLE 14.1: Federal civilian employment
14.1
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FIGURE 14.1: Departmental service of federal non postal civilian employees
14.1
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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
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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
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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
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FIGURE 14.2: Characteristics of federal nonpostal civilian employees
14.1
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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
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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
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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
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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
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How the Federal Bureaucracy is Organized
Cabinet Departments
Independent Regulatory Commissions
Government Corporations
Independent Executive Agencies
14.2
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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
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FIGURE 14.3: Organization of the Executive Branch
14.2
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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
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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
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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
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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
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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?
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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
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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
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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
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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
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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
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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
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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.
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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
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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
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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.
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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
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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
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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
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Video: In Context 14.3
http://media.pearsoncmg.com/ph/hss/SSA_SHARED_MEDIA_1/polisci/presidency/Seg3_Bureaucracy_v2.html
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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
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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
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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
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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
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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
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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
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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
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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
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Controlling the Bureaucracy
Presidents Try to Control the Bureaucracy
Congress Tries to Control the Bureaucracy
Iron Triangles and Issue Networks
14.5
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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
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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
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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
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FIGURE 14.4: Iron Triangles: One example
14.5
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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
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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
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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.
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Video: Thinking Like a Political Scientist
14.6
http://media.pearsoncmg.com/ph/hss/SSA_SHARED_MEDIA_1/polisci/presidency/Seg4_Bureaucracy_v2.html
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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
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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
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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
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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
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Video: In the Real World 14.6
http://media.pearsoncmg.com/ph/hss/SSA_SHARED_MEDIA_1/polisci/presidency/Seg5_Bureaucracy_v2.html
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Explore the Bureaucracy: What Puts the "Big" in Big Government?
14.6
http://media.pearsoncmg.com/long/long_edwards_mpslgia_16/pex/pex14.html
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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
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Video: So What? 14
http://media.pearsoncmg.com/ph/hss/SSA_SHARED_MEDIA_1/polisci/presidency/Edwards_Ch14_The_Federal_Bureaucracy_Seg6_v2.html
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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
Bureaucracy Unit