Chapter Seventeen: The Bureaucracy of Homeland Security.

Chapter Seventeen:Chapter Seventeen:

The Bureaucracy of The Bureaucracy of Homeland SecurityHomeland Security

Bureaucracy: The Bureaucracy: The Weberian IdealWeberian Ideal

Max WeberMax Weber Max Weber coined the term bureaucracy Max Weber coined the term bureaucracy

to describe professional, rational to describe professional, rational organizationsorganizations

People organize for a purpose and their People organize for a purpose and their organizations should accomplish that organizations should accomplish that purposepurpose

The process is rational: There is a The process is rational: There is a problem, people organize to solve it, they problem, people organize to solve it, they work together, and the problem is solvedwork together, and the problem is solved

Bureaucracy should be designed to Bureaucracy should be designed to accomplish specific purposesaccomplish specific purposes

Bureaucracy: The Weberian IdealBureaucracy: The Weberian Ideal

The ideal bureaucracyThe ideal bureaucracy In Weber’s ideal, labor is to be divided In Weber’s ideal, labor is to be divided

into specific functions or bureaus, and all into specific functions or bureaus, and all the bureaus or functions of the the bureaus or functions of the organization are to assemble logically to organization are to assemble logically to produce the wholeproduce the whole

Modern bureaucratic management Modern bureaucratic management ideally comes from leaders who excel at ideally comes from leaders who excel at leadershipleadership

Every aspect of the organization centers Every aspect of the organization centers on rational efficiencyon rational efficiency


Views concerning the expanded homeland Views concerning the expanded homeland security bureaucracysecurity bureaucracy Supporters of one position maintain that Supporters of one position maintain that

consolidating power is efficient. They argue consolidating power is efficient. They argue that a large bureaucracy with a clear mission that a large bureaucracy with a clear mission will empower the security forces to perform will empower the security forces to perform their missiontheir mission

Proponents of a second position suggest that Proponents of a second position suggest that decentralizing power personalizes services decentralizing power personalizes services and helps develop links to communities. They and helps develop links to communities. They believe localized, informal offices are more believe localized, informal offices are more adept at recognizing and handling problemsadept at recognizing and handling problems


The Role of Law The Role of Law Enforcement and Enforcement and

IntelligenceIntelligence

The lead agency for counterterrorism: FBIThe lead agency for counterterrorism: FBI Under Director Robert Mueller the FBI’s Under Director Robert Mueller the FBI’s

charge is to prevent terrorismcharge is to prevent terrorism The FBI is to coordinate intelligence The FBI is to coordinate intelligence

gathering and sharing activities with the gathering and sharing activities with the Border Patrol, Secret Service, and CIABorder Patrol, Secret Service, and CIA

The FBI is to operate as partners with The FBI is to operate as partners with state and local law enforcement. state and local law enforcement.

Finally, since the FBI is in the Department Finally, since the FBI is in the Department of Justice, it is to coordinate activities with of Justice, it is to coordinate activities with DHS and the Department of DefenseDHS and the Department of Defense

The Role of Law Enforcement The Role of Law Enforcement and Intelligenceand Intelligence


A new role for the CIAA new role for the CIA Originally, the CIA was supposed Originally, the CIA was supposed

to be the agency that would to be the agency that would coordinate al U.S. intelligence datacoordinate al U.S. intelligence data

The CIA was to operate apart from The CIA was to operate apart from U.S. criminal lawU.S. criminal law

Today, the CIA is to cooperate fully Today, the CIA is to cooperate fully with the FBI on counterterrorism with the FBI on counterterrorism intelligenceintelligence


The Department of Homeland SecurityThe Department of Homeland Security DHS is also charged with DHS is also charged with

counterterrorismcounterterrorism DHS includes law enforcement DHS includes law enforcement

agencies, such as the Secret Service, agencies, such as the Secret Service, the Border Patrol, the new Immigration the Border Patrol, the new Immigration and Customs Enforcement, the U.S. and Customs Enforcement, the U.S. Customs Service, and other agenciesCustoms Service, and other agencies

It has its own military, and its own It has its own military, and its own intelligence sectionintelligence section


Department of DefenseDepartment of Defense The DOD augments civilian The DOD augments civilian

defense, provides special defense, provides special operation capabilities, and operation capabilities, and interdicts terrorists before they interdicts terrorists before they arrive in the United Statesarrive in the United States

The main military role in The main military role in counterterrorism is to project counterterrorism is to project American power overseasAmerican power overseas


The array of American powerThe array of American power In theory, led by the FBI and the CIA, multiple In theory, led by the FBI and the CIA, multiple

agencies will work together to gain agencies will work together to gain information, analyze it together, and share information, analyze it together, and share the results with every bureaucracy the results with every bureaucracy concerned with homeland securityconcerned with homeland security

The FBI and the CIA are to create a The FBI and the CIA are to create a cooperative, sharing atmosphere with cooperative, sharing atmosphere with thousands of state and local law enforcement thousands of state and local law enforcement agenciesagencies

DHS calls on the entire system of homeland DHS calls on the entire system of homeland security bureaucracies to form relations with security bureaucracies to form relations with local communities and private industrylocal communities and private industry

Protecting the BordersProtecting the Borders


Agencies protecting the American bordersAgencies protecting the American borders The Secret ServiceThe Secret Service The Coast GuardThe Coast Guard Customs and Border ProtectionCustoms and Border Protection Immigration and Customs EnforcementImmigration and Customs Enforcement The Federal Law Enforcement Training The Federal Law Enforcement Training

CenterCenter The Office of Domestic PreparednessThe Office of Domestic Preparedness The Transportation Security The Transportation Security

Administration Administration

Protecting the BordersProtecting the Borders Areas of vulnerability on the American bordersAreas of vulnerability on the American borders

Long stretches of unprotected areas along the Long stretches of unprotected areas along the northern and southern borders are open to northern and southern borders are open to infiltrationinfiltration

More than three hundred seaports must be securedMore than three hundred seaports must be secured The DHS has agencies responsible for securing The DHS has agencies responsible for securing

entry into the United States at airports, and it is entry into the United States at airports, and it is responsible for protecting air travel once the entry responsible for protecting air travel once the entry points are protectedpoints are protected

Border agents are responsible for staffing entry Border agents are responsible for staffing entry points along the northern and southern borderspoints along the northern and southern borders

Another DHS agency has the task of accounting for Another DHS agency has the task of accounting for noncitizens within U.S. Bordersnoncitizens within U.S. Borders


DHS protecting the bordersDHS protecting the borders DHS cooperates with the FBI and CIADHS cooperates with the FBI and CIA DHS has increased the number of DHS has increased the number of

people who patrol the borderpeople who patrol the border DHS uses technology, such as DHS uses technology, such as

biometric measuring-- that is, biometric measuring-- that is, identification systems based on identification systems based on body characteristics such as finger body characteristics such as finger prints, facial patterns, or DNAprints, facial patterns, or DNA


Criticisms of DHS activitiesCriticisms of DHS activities Activities may not be effectiveActivities may not be effective Some DHS policies have not been Some DHS policies have not been

popular with other countriespopular with other countries Many local governments feel they Many local governments feel they

need the tryst and cooperation of need the tryst and cooperation of foreigners living in their areasforeigners living in their areas

Protecting the BordersProtecting the Borders 9-11 Commission Report’s recommendations for 9-11 Commission Report’s recommendations for

border securityborder security A single agency should screen crossings with a A single agency should screen crossings with a

single formatsingle format An investigative agency should be established to An investigative agency should be established to

monitor aliens in the United Statesmonitor aliens in the United States The DHS should gather intelligence on the way The DHS should gather intelligence on the way

terrorists travel, and combine intelligence and terrorists travel, and combine intelligence and law enforcement activities to hamper their law enforcement activities to hamper their mobilitymobility

There should be a standardize method for There should be a standardize method for obtaining identification and wanted passports obtaining identification and wanted passports using biometric measuresusing biometric measures

Infrastructure ProtectionInfrastructure Protection


Identification and protection of Identification and protection of critical infrastructurescritical infrastructures

DHS states that law enforcement DHS states that law enforcement agencies will need to develop agencies will need to develop cooperative links with public and cooperative links with public and private bureaucracies, including private bureaucracies, including private security organizations, private security organizations, educational institutions, and educational institutions, and health care systemshealth care systems


CriticismsCriticisms Too little is being doneToo little is being done A year after September 11, the A year after September 11, the

federal government had failed to federal government had failed to release resources to state and release resources to state and local governmentslocal governments

Federal law enforcement does Federal law enforcement does little to assist private securitylittle to assist private security

Richard Clarke’s threats facing the Richard Clarke’s threats facing the nation of infrastructuresnation of infrastructures

Most computer systems are vulnerable Most computer systems are vulnerable to virusesto viruses

The nation’s power system and The nation’s power system and technological organizations that technological organizations that support it are vulnerable to disruptionssupport it are vulnerable to disruptions

The Internet and computer networks The Internet and computer networks that support these systems are that support these systems are vulnerable to attackvulnerable to attack


Infrastructure ProtectionInfrastructure Protection Protection of the infrastructureProtection of the infrastructure

According to Clarke, the state and local law According to Clarke, the state and local law enforcement should not play the leading role in enforcement should not play the leading role in infrastructure protectioninfrastructure protection

Protection of the infrastructure comes when Protection of the infrastructure comes when specialists in crime fighting and protection specialists in crime fighting and protection establish critical links with the public and private establish critical links with the public and private organizations serving America’s infrastructureorganizations serving America’s infrastructure

The police should be linked to security forces The police should be linked to security forces already associated with infrastructure functionsalready associated with infrastructure functions

State and local law enforcement agencies must State and local law enforcement agencies must establish formal and informal networks with the establish formal and informal networks with the organizations in their jurisdictions, and these organizations in their jurisdictions, and these networks should expand to a cooperative federal networks should expand to a cooperative federal systemsystem

DHS, Security, and DHS, Security, and Police WorkPolice Work

DHS, Security, and Police WorkDHS, Security, and Police Work Local law enforcement agenciesLocal law enforcement agencies

The IACP believes that local law enforcement The IACP believes that local law enforcement agencies will become the hinge on which all local agencies will become the hinge on which all local efforts pivotefforts pivot

Homeland security entails coordinating efforts Homeland security entails coordinating efforts from several local organizations, including from several local organizations, including private industry, public service, health care private industry, public service, health care systems, and law enforcementsystems, and law enforcement

As local agencies become involved in homeland As local agencies become involved in homeland security, they must become involved in security, they must become involved in assessing threats in their jurisdictions. They assessing threats in their jurisdictions. They must also learn to recognize possible items that must also learn to recognize possible items that may add to national defense intelligence and may add to national defense intelligence and develop routines to forward such informationdevelop routines to forward such information

DHS, Security, and Police WorkDHS, Security, and Police Work

Police and gathering defense Police and gathering defense intelligenceintelligence The process of gathering defense The process of gathering defense

intelligence is not readily apparent intelligence is not readily apparent in American policingin American policing

Police work is political, and law Police work is political, and law enforcement officers think locallyenforcement officers think locally

DHS, Security, and Police WorkDHS, Security, and Police Work Abstract reasoning skillsAbstract reasoning skills

State and local officers are not rewarded for State and local officers are not rewarded for thinking in terms of international issues or national thinking in terms of international issues or national securitysecurity

Chiefs and sheriffs do not usually praise abstract Chiefs and sheriffs do not usually praise abstract reasoning, and higher education has done little to reasoning, and higher education has done little to help this situationhelp this situation

Criminal justice programs do not produce abstract, Criminal justice programs do not produce abstract, critical thinkers for law enforcementcritical thinkers for law enforcement

To combat terrorism, security forces require groups To combat terrorism, security forces require groups of people with abstract reasoning skills, knowledge of people with abstract reasoning skills, knowledge of international politics and history, and specialized of international politics and history, and specialized expertise in particular regions. However, the ethos expertise in particular regions. However, the ethos behind policing rejects this logicbehind policing rejects this logic

Possible Approaches for Possible Approaches for Homeland Security Homeland Security

BureaucraciesBureaucracies

Possible Approaches for Homeland Possible Approaches for Homeland Security BureaucraciesSecurity Bureaucracies

Legal alternatives to police Legal alternatives to police participation in homeland defenseparticipation in homeland defense Gathering security information in Gathering security information in

the course of criminal the course of criminal investigationsinvestigations

Combine training in alertness with Combine training in alertness with specialized training for selected specialized training for selected officersofficers


The FBI’s Joint Terrorism Task Force The FBI’s Joint Terrorism Task Force (JTTF)(JTTF) The JTTF combines local, state, The JTTF combines local, state,

and various federal police officers, and various federal police officers, as well as corrections officials and as well as corrections officials and prosecutors, in regional units prosecutors, in regional units designed to combat terrorismdesigned to combat terrorism


Opposition to the JTTFOpposition to the JTTF Local governments have refused to Local governments have refused to

allow their police forces to assist in allow their police forces to assist in counterterrorist activitiescounterterrorist activities

Civil libertarians see the formation Civil libertarians see the formation of a JTTF as too great of a of a JTTF as too great of a consolidation of government powerconsolidation of government power

State and federal courts may well State and federal courts may well limit the role of local agencies in limit the role of local agencies in homeland securityhomeland security


Other democracies who have had Other democracies who have had their police engage in intelligence their police engage in intelligence gathering activities and have gathering activities and have expanded their role in national expanded their role in national defensedefense FranceFrance GermanyGermany CanadaCanada The BritishThe British

Bureaucratic InhibitorsBureaucratic Inhibitors

Bureaucratic InhibitorsBureaucratic Inhibitors Public service organizations have foibles that Public service organizations have foibles that

emerge in the everyday social construction emerge in the everyday social construction of realityof reality

The FBI versus Police and Sheriff’s The FBI versus Police and Sheriff’s DepartmentsDepartments Many state and local police executives do Many state and local police executives do

not trust the FBI, and the attitude extends not trust the FBI, and the attitude extends down through the ranks of law down through the ranks of law enforcement agenciesenforcement agencies

The relationship between the FBI and state The relationship between the FBI and state and local law enforcement must improveand local law enforcement must improve

Bureaucratic InhibitorsBureaucratic Inhibitors Federal Law Enforcement RivalriesFederal Law Enforcement Rivalries

Organizations on every level Organizations on every level frequently act out of self-interest frequently act out of self-interest rather than concern with an overall rather than concern with an overall missionmission

Advocates of Local ControlAdvocates of Local Control Some people feel cooperation Some people feel cooperation

between state and local law between state and local law enforcement will result in the de enforcement will result in the de fact concentration of police powerfact concentration of police power

Bureaucratic InhibitorsBureaucratic Inhibitors

The Problem of Legal BureaucracyThe Problem of Legal Bureaucracy The criminal justice system is The criminal justice system is

actually not a system at all, but a actually not a system at all, but a multifaceted bureaucracy with multifaceted bureaucracy with intersecting layersintersecting layers

While police and correctional While police and correctional institutions represent the executive institutions represent the executive branch of the government, the branch of the government, the courts autonomously belong to the courts autonomously belong to the judicial branchjudicial branch

Bureaucratic InhibitorsBureaucratic Inhibitors The Bureaucracy ProblemThe Bureaucracy Problem

Change can happen, and may even be welcome, Change can happen, and may even be welcome, if federal agencies enter into cooperative if federal agencies enter into cooperative relationships with their local counterpartsrelationships with their local counterparts

Large organizations are difficult to manage, and Large organizations are difficult to manage, and problems increase rapidly when organizational problems increase rapidly when organizational effectiveness requires cooperation on several effectiveness requires cooperation on several levelslevels

If the DHS can create effective partnerships with If the DHS can create effective partnerships with intelligence and law enforcement agencies on the intelligence and law enforcement agencies on the federal level, it could focus attention on these federal level, it could focus attention on these issues. However, homeland security becomes a issues. However, homeland security becomes a problem much larger than gathering and problem much larger than gathering and analyzing informationanalyzing information

The problem appears in preventing terrorism, The problem appears in preventing terrorism, and preventing requires bureaucratic changeand preventing requires bureaucratic change

Stephen Flynn’s Critique Stephen Flynn’s Critique of the Idealof the Ideal


Two mistakes made by the United Two mistakes made by the United StatesStates Homeland security has been Homeland security has been

separated from national securityseparated from national security The infrastructure is vulnerable to The infrastructure is vulnerable to

attackattack Homeland security should be part of Homeland security should be part of

a national strategy to defend the a national strategy to defend the United StatesUnited States


Weapons of mass destructionWeapons of mass destruction According to the CIA, the most According to the CIA, the most

likely scenario for smuggling likely scenario for smuggling weapons of mass destruction into weapons of mass destruction into the United States is by seathe United States is by sea

The Bush administration has done The Bush administration has done very little to protect the nation’s very little to protect the nation’s 361 seaports361 seaports


The nation’s infrastructureThe nation’s infrastructure In the 2005 military budget, the In the 2005 military budget, the

infrastructure for the entire nation infrastructure for the entire nation will receive only $2.6 billion, whereas will receive only $2.6 billion, whereas the DOD was allotted $7.6 billionthe DOD was allotted $7.6 billion

Flynn sees a problem in strategic Flynn sees a problem in strategic thinking in DHS and other agenciesthinking in DHS and other agencies

Increased border protection will not Increased border protection will not protect America against terrorist protect America against terrorist attacksattacks


Jihadists are aware of the Jihadists are aware of the vulnerabilities in the infrastructurevulnerabilities in the infrastructure The safest and most effective way The safest and most effective way

to hit America is to strike the to hit America is to strike the infrastructureinfrastructure

Reinvent homeland securityReinvent homeland security DHS and other federal DHS and other federal

bureaucracies should think of bureaucracies should think of security from a broad perspectivesecurity from a broad perspective


Flynn’s recommendations for the futureFlynn’s recommendations for the future The best current model for homeland The best current model for homeland

security is the air industrysecurity is the air industry When bureaucracies recover from When bureaucracies recover from

failure, people will believe in their own failure, people will believe in their own safety and continue to functionsafety and continue to function

Americans must be able to absorb a Americans must be able to absorb a major attack and continue to functionmajor attack and continue to function

Chapter Seventeen: The Bureaucracy of Homeland Security.

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