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For use with Keeping the Republic. Copyright 2006 by CQ Press.
The Bureaucracy
Chapter 9
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For use with Keeping the Republic. Copyright 2006 by CQ Press.
In this chapter we will learn about
The definition of bureaucracy
The evolution, organization, and roles of the federal
bureaucracy
Politics inside the bureaucracy The relationship between the federal bureaucracy and
the other branches of the federal government
How citizens relate to the bureaucracy
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What is bureaucracy?
An organization characterized by hierarchical structure,
worker specialization, explicit rules, and advancement by
merit
Goal is neutral competence: the principle that
bureaucracy should be depoliticized by making it more
professional
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For use with Keeping the Republic. Copyright 2006 by CQ Press.
What is bureaucracy?, contd.
Classic definition from Max Weber highlights
Hierarchy: clear chain of command and responsibility
Specialization: tasks divided by expertise
Explicit rules: rules rather than preferences governdecisions; have standardization, predictability
Merit: hiring based on exams and experience, not
politics
Max Weber
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IS A SCHOOL DISTRICT A
BUREAUCRACY ?
yes
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Superintendent
Administrative
Staff (7)
Assistant
Superintendents (12)Directors (37)
Senior High Schools (8)
Principal
Mr. Smith
Middle Schools (12) Elementary Schools (40)
Director of Instruction
Ms. Diskin
Associate Principal
Ms. Giron
Lead Counselor
Ms. Baker
Department Chairs( 15)
Social Studies (Ms. Schwartz)Assistant Principals (6) Counselors (6)
Team Leaders (4)
Gov/Eco (Hermy)
Teachers
Gov/Eco (6)
CFISD Administrative Chart
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The spoils system
Nineteenth-century practice of rewarding political
supporters with public office
Patronage was undone by civil service reforms, such
as the Pendleton Act (1893) and the Hatch Act (1939)
Civil Service Reform Act
Pendleton Civil Service Reform Act
Hatch Act of 1939
Civil Service Reform Act of 1978 Bureaucracies no longer staffed by patronage
http://en.wikipedia.org/wiki/Pendleton_Civil_Service_Reform_Acthttp://en.wikipedia.org/wiki/Hatch_Act_of_1939http://en.wikipedia.org/wiki/Civil_Service_Reform_Act_of_1978http://en.wikipedia.org/wiki/Civil_Service_Reform_Act_of_1978http://en.wikipedia.org/wiki/Hatch_Act_of_1939http://en.wikipedia.org/wiki/Pendleton_Civil_Service_Reform_Act7/30/2019 09 Ch Lecture Slides
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Why is bureaucracy necessary?
Large tasks require organization and specialization
Bureaucracies exist in private sector too
Because expertise is required in many decisions,
democracy not the best way to make every decision
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Possible drawbacks of bureaucracy
Consequences in a rule-based system
Decisions are fair, but there is a lot of red tape
Accountability with rules, but less clear in publicbureaucracy
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Evolution of American federal bureaucracy
Design of federal bureaucracy less like a coherentstructure and more like a patchwork quilt
First departments served essential government functions
State, War, Treasury
Newer departments were responses of changing publicneeds, for example,
Western territories = Interior Industrialization = Labor
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A PATCHWORK ?
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ORGANIZATIONAL STRUCTURE
OF DHS
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Evolution of American federal
bureaucracy, contd.
Departments created to respond to demands of clientele
groups
Clientele groups: groups of citizens whose interestsare affected by an agency or department and who
work to influence its policies
E.g., agricultural interests pushed for Dept. of
Agriculture and veterans for Dept. of Veterans Affairs
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Organization of the federal bureaucracy
Departments: major subdivisions of the federalgovernment, represented in the presidents cabinet
E.g., Defense, State, Treasury, Homeland Security
Independent agencies: government organizationsindependent of the departments but with a narrowerpolicy focus
E.g., EPA, CIA, Peace Corps
Independent agencies of the United Statesgovernment
http://en.wikipedia.org/wiki/Independent_agencies_of_the_United_States_governmenthttp://en.wikipedia.org/wiki/Independent_agencies_of_the_United_States_governmenthttp://en.wikipedia.org/wiki/Independent_agencies_of_the_United_States_governmenthttp://en.wikipedia.org/wiki/Independent_agencies_of_the_United_States_government7/30/2019 09 Ch Lecture Slides
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Organization of the federal
bureaucracy, contd.
Independent regulatory boards and commissions:government organizations that regulate variousbusinesses, industries, or economic sectors
E.g., FDA, FCC, National Labor Relations Board
Government corporations: companies created byCongress to provide goods or services to the public thatprivate enterprise cannot or will not profitably provide
E.g., Amtrak, Postal Service, FDIC
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Roles of federal bureaucracy
Bureaucracy as administrator Implement laws passed by Congress
Bureaucracy as rule maker Congress relies on bureaucratic discretion
Bureaucracy as judge Interprets laws within department or agency
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Who are the federal bureaucrats?
Rank-and-file members of agencies and departments;
not department or agency heads
Usually reflect public accurately
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Politics inside the bureaucracy
Bureaucratic culture: the accepted values andprocedures of an organization
Policy commitment
Believe agencys issue is most critical facing country
Bureaucrats speak bureaucratese and defer to authority
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Politics inside the bureaucracy, contd.
Specialization and expertise
Know more about policy than politicians and public
Identify with agency
Committed to and protective of agency
Consequences of bureaucratic culture
Positive: commitment helps agency to make policy
Negative: resistant to suggestions of change, even tothe extent of covering up problems
Whistle blowers are often the only check against thesenegatives
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Presidential appointees vs.
career civil servants
Conflicting agendas
True believers in agencys mission may conflict if
appointees ideology is different
Conflicting timeframes
Appointees have short-term outlooks, so civil servants
can just wait until appointee leaves office
Presidents often start new agency rather than change
existing one
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External bureaucratic politics
Interagency politics: competition between agencies for
budget and resources
Constituency building
Build groups of supporters in public and Congress
Guarding the turf
Guard own programs and dont let others duplicatetraditional responsibilities
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The bureaucracy and the president
Appointment power
Presidents appoint heads and next layers of
departments
Budget proposal
OMB can cut a departments budget
Presidential veto of agency funding
Power of persuasion
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The bureaucracy and Congress
Iron triangles
Alliance of congressional committees, interest groups,
and agencies working together for mutual benefit
Issue networks: more complex relationships
Congress controls bureaucracy through committees that
have influence, and bureaucracy responds
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IRON TRIANGLE
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The bureaucracy and the courts
Courts may deal with cases against agencies or
departments, but rarely
Congress often protects agencies and departments from
courts
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The citizens and bureaucracy
Public seems unable to check bureaucracy.
Avenues for citizens to control bureaucracies:
Citizen advisory councils, but typically people are
biased toward the policy
Sunshine laws allow citizens to see when meetingsare held
Freedom of Information Act get copies of agency
info Privacy Act (1974) access to agency files on
oneself
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The citizens and the bureaucracy, contd.
Does the United States have a better bureaucracy than
we deserve?
Given public disfavor and inattentiveness, bureaucracy
performs relatively well.