The Executive Branch. The Bureaucracy Problem All organizations have –Standard operating...
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Transcript of The Executive Branch. The Bureaucracy Problem All organizations have –Standard operating...
The Executive Branch
The Bureaucracy Problem
• All organizations have– Standard operating procedures– Culture (values)– Interests (seek autonomy, resources, prestige)
The Bureaucracy Problem
• Because of standard procedures, values and interests, problems arise:– Resistance to change– Isolation– Fragmentation– Lack of co-ordination
Resistance to Change Culture:
“The Concern about the FBI is that it has long favored its criminal justice mission over its national security mission”
- 9/11 Commission Report, page 423
Vested interests leads to Isolation: “Responsibility for domestic intelligence gathering on
terrorism was vested solely in the FBI, yet during almost all of the Clinton Administration the relationship between the FBI Director and the President was nearly nonexistent. The FBI Director would not communicate directly with the President. His key personnel shared very little information with the National Security Council and the rest of the national security community. As a consequence, one of the critical working relationships in the counterterrorism effort was broken.”
- 9/11 Commission Report, page 358
Fragmentation: Members of the U.S. Intelligence Community
• Office of the Director of Central Intelligence
• The Central Intelligence Agency (CIA)
• National intelligence agencies:– National Security Agency (NSA)
– National Geospatial-Intelligence Agency (NGA)
– National Reconnaissance Office (NRO)
• Departmental intelligence agencies:– Defense Intelligence Agency (DIA) – Defense Dept.
– Intelligence entities of the armed forces
– Bureau of Intelligence and Research (INR) – State Dept.
– Office of Terrorism and Finance Intelligence – Treasury Dept.
– Office of Intelligence and the Counterterrorism and Counterintelligence – FBI, Justice Dept.
– Office of Intelligence – Energy Dept.
– Directorate of Information Analysis and Infrastructure Protection (IAIP) – Homeland Security
– Directorate of Coast Guard Intelligence – Homeland Security
Lack of Co-ordination: Proposed Reforms
• Structural barriers to performing joint intelligence work
• Lack of common standards and practices across the foreign-domestic divide
• Divided management of national intelligence capabilities
• Weak capacity to set priorities and move resources• Too many jobs• Too complex and secret
- 9/11 Commission Report, pages 407-410
Historical Evolution of U S. Bureaucracies
1. Dubious ancestry
2. Built on spoils system
3. Civil service reform bottom-up, not top down
Dubious Ancestry
“The climate was intolerable. The place was a menace to
health, pervaded with contaminated vapour, which
brought on all manner of agues and other complaints
. . . . The cuisine was atrocious--hog and hominy grits
and not even any fruit fit for hogs to eat. The residential
accommodations were narrow, . . . uncomfortable and
expensive.”
James Young, The Washington Community
Built on spoils system
Black Representation in State and Local Government Compare to Private Sector
0
5
10
15
20
25
Pe
rce
nta
ge
of
Bla
ck
s
Government Private Sector
Administrators and Professional Staff
Clerical andTechnical Workers
Skilled Crafts Service Workers
0
2
4
6
8
10
12
14
16
18
Pe
rce
nta
ge
of
His
pa
nic
s
Government Private Sector
Administrators and Professional Staff
Clerical andTechnical Workers Skilled Crafts Service Workers
Hispanic Representation in State and Local Government Compare to Private Sector
Bottom-up reforms erode spoils system
Pendleton Act
“blanketed in”
Hatch Act
20
Number of Public Sector Employees 1983-2004
21
Union Membership by Sector, 1972-2004
Homeland Security Act
Patronage Today
High Level Patronage Appointments in the Average Government Department
0
20
40
60
80
100
120
Nu
mb
er
1960 1992
“inners and outers”
Congressional politics and bureaucracy
Senatorial Courtesy
Average Time It Takes Presidential Appointees to Be Confirmed
0
1
2
3
4
5
6
7
8
9
Mo
nth
s
Kennedy1961
Nixon1969
Carter1977
Reagan1981
Bush1989
Clinton1993
Bush2001
“The new [Bush] administration – like othersbefore it – did not have its team on the jobuntil at least six months after it took office.”
- 9/11 Commission Report, page 422
“Recommendation: Since a catastrophic attack couldoccur with little or no notice, we should minimize asmuch as possible the disruption of national securitypolicymaking during the change of administrationsby accelerating the process for national securityAppointments”
- 9/11 Commission Report, page 422
Budgetary control
• Decide funding for each agency, and programs within agencies.
• “Earmark”—the way to get pork for your district
THE IRON TRIANGLE
BureaucraticAgency
Benef
its
Appropriations/A
uthority
Interest Groups
Pressure/Votes Congressional Subcommittee
Establishment Year of Each Cabinet Department and Group Allies
Department Year Group Allies
Inner CabinetState 1789Treasury 1789Justice (Attorney General) 1789War (Defense) 1789
Outer CabinetInterior 1849 Timber, miners, ranchersAgriculture 1889 Farm Bureau and other farm groupsCommerce 1913 Chamber of CommerceLabor 1913 AFL-CIOHealth and Human Services 1953 American Association of Retired PersonsHousing and Urban Development 1965 League of CitiesTransportation 1966 Auto manufacturers, truckers, airlinesEnergy 1967 Gas, Oil, nuclear interestsEducation 1979 Teacher unionsVeterans Affairs 1987 American Legion, VFWEnvironmental Protection Agency 1990 Sierra Club and other environmental
groupsHomeland Security 2002
Independent Agencies and their Group Allies
Board Length Independent Agency Size of Term Group AlliesNational Credit Union Administration 3 6 Credit UnionsFederal Reserve Board 7 14 BanksSecurity and Exchange Commission 5 5 investment banks, etcConsumer Product Safety 5 5 Consumers UnionEqual Employment Opportunity 5 5 Civil rights groupsFederal Deposit Insurance Corporation 3 6 BanksFederal Energy Regulatory Commission 4 4 Oil/gas interestsFederal Maritime Commission 5 5 FisheriesFederal Trade Commission 5 7 Business groupsNational Labor Relations Board 5 5 UnionsSecurities and Exchange Commission 5 5 Wall StreetTennessee Valley Authority 3 9 Regional Farmers
and utilities
Iron Triangle that Existed in the 1950s
Joint Committee on Atomic Energy
(Congress)
“Big Four of the Nuclear Power Industry”
(General Electric, Westinghouse, Combustion Engineering, Babcock and Wilcox)
Atomic Energy Commission
(independent agency in the executive branch)
ConsumerGroups
(National Taxpayers Union, PIRG)
Environmental Groups
(Sierra Club, Friends of the Earth)
Scientific Groups (Union of Concerned Scientists, American
Physical Society)
Senate Environmental &
Public Works Committee
House Interior and Insular Affairs
Committee
Environmental Protection
Agency
Department of the Interior
Nuclear Regulatory Commission
Department of Energy
Construction Companies (Bechtel, Raytheon, Stone &
Webster)
The “Big Four” Manufacturers
Scientific Groups (Union of Concerned Scientists, American
Physical Society)
House Energy & Commerce Committee
Senate Energy & Natural Resources
Committee
American Nuclear Energy
Council
State Governments
Courts
News Media Think Tanks and Universities
Issue Network that exists today (1970s – 1990s)