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The Federal Bureaucracy

Chapter 15

I. Introduction
A. Classic conception of bureaucracy (Max Weber)
1. Hierarchical authority structure

2. Uses task specialization

3. Operate on the merit principle

4. Behave with impersonality

5. A well-organized machine with lots of working parts.

II. The Bureaucrats


A. Some Bureaucratic Myths and Realities
1. Americans dislike bureaucrats.

2. Bureaucracies are growing bigger each year.

3. Most federal bureaucrats work in Washington, D.C.

4. Bureaucracies are ineffective, inefficient and always mired in red


tape.

B. Who They Are and How They Got There


1. Most demographically representative part of government.

2. Diversity of jobs mirrors the private sector.

3. Civil Service: From Patronage to Protection.


a) Patronage: Job given for political reasons.

b) Civil Service: System of hiring and promotion based on


merit and nonpartisanship (Pendleton Civil Service Act).

c) Merit Principle: Entrance exams and promotion ratings to


find people with talent and skill.

d) Office of Personnel Management: The federal office in


charge of most of the government’s hiring.

4. The Other Route to Federal Jobs: Recruiting from the Plum Book

a) Published by Congress.

b) Lists the very top jobs available for Presidential


appointment.

c) Presidents work to find capable people to fill the positions.

d) Some plum jobs (ambassadorships) are patronage.

III. How Bureaucracies Are Organized


A. The Cabinet Departments
1. 13 Cabinet departments headed by a secretary

2. Department of Justice headed by Attorney General

3. Each has its own budget, staff and policy areas

4. Republicans have been trying to eliminate several departments

B. The Regulatory Agencies


1. Independent Regulatory Agency: Responsible for some sector of
the economy making rules and judging disputes to protect the public
interest.

2. Headed by a commission of 5-10 people.

3. Rule making is an important function watched by interest groups


and citizens alike.

4. Concern over “capture” of the agencies.

C. The Government Corporations


1. Business like - provide a service like private companies and
typically charges for its services.

2. Postal Service, Amtrak are examples

D. Independent Executive Agencies


1. The agencies that don’t fit in anywhere else.

2. GSA and NASA are examples

IV. Bureaucracies as Implementers


A. What Implementation Means
1. It involves translating the goals and objectives of a policy into an
operating, ongoing program.

2. It includes:

a) Creating / assigning an agency the policy

b) Turning policy into rules, regulations and forms.

c) Coordinating resources to achieve the goals.

B. Why the Best-Laid Plans Sometimes Flunk the


Implementation Test
1. Program Design.

2. Lack of Clarity.

a) Congressional laws are ambiguous and imprecise.

b) Sometimes the laws conflict with each other.

3. Lack of Resources.

a) Agencies may be big, but not in the right areas.

b) Many different types of resources are needed: personnel,


training, supplies & equipment.
c) May also lack the authority to act.

4. Administrative Routine.

a) SOPs bring uniformity to complex organizations.

b) It is often difficult to change the routines.

5. Administrator’s Dispositions.

a) Administrative discretion is the ability to select among


various responses.

b) Street-level bureaucrats have the most discretion.

6. Fragmentation.

a) Some policies are spread among several agencies.

b) Some agencies have different rules for the same policy.

C. A Case Study: The Voting Rights Act of 1965


1. Generally considered a success.

2. Had a clear, concise goal.

3. The implementation was clear.

4. Those carrying out the law had obvious authority and vigor to do
so.

V. Bureaucracies as Regulators
A. Regulation in the Economy and in Everyday Life
1. Regulation: Use of governmental authority to control or change
some practice in the private sector.

2. A Full Day of Regulation.

a) Federal agencies check, verify and inspect many of the


products and services we take for granted.

b) Federal and state agencies provide many services.


B. Regulation: How It Grew, How It Works
1. Command-and-Control Policy: Government tells business how to
reach certain goals, checks the progress and punishes offenders.

2. Incentive System: Market-like strategies are used to manage


public policy.

3. Some agencies are proactive, some are reactive.

C. Regulation: How It Grew, How It Works


1. All regulation contains these elements:

a) A grant of power and set of directions from Congress

b) A set of rules and guidelines by the regulatory agency


itself

c) Some means of enforcing compliance with congressional


goals and agency regulations

D. Toward Deregulation
1. Deregulation: The lifting of restrictions on business, industry,
and professional activities.

2. Regulatory problems:

a) Raises prices

b) Hurts U.S.’s competitive position abroad

c) Does not always work well

3. But some argue regulation is needed.

VI. Understanding Bureaucracies


A. Bureaucracy and Democracy
1. Presidents Try to Control the Bureaucracy

a) Appoint the right people.


b) Issue executive orders.

c) Tinker with the agency’s budget.

d) Reorganize an agency.

B. Bureaucracy and Democracy


1. Congress Tries to Control the Bureaucracy

a) Influence presidential appointments.

b) Tinker with the agency’s budget.

c) Hold hearings.

d) Rewrite the legislation or make it more detailed.

2. Iron Triangles

a) A mutually dependent relationship between bureaucratic


agencies, interest groups, and congressional committees or
subcommittees.

b) Exist independently of each other.

c) They are tough, but not impossible, to get rid of.

d) Some argue they are being replaced by wider issue


networks that focus on more policies.

VII. Bureaucracy and the Scope of Government


A. Many state that this is an example of a government out of
control.
B. But, the size of the bureaucracy has shrunk.
C. Some agencies don’t have enough resources to do what
they are expected to do.
D. Only carry out the policies, Congress and the president
decide what needs to be done.

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