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We the People Book Cover
We the People: A Concise Introduction to American Politics, 4/e
Thomas E. Patterson, Harvard University

The Bureaucracy

Chapter 13 Summary

Bureaucracy is a method of organizing people and work; it is based on the principles of hierarchical authority, job specialization and formalized rules. As a form of organization, bureaucracy is the most efficient means of getting people to work together on tasks of great magnitude and complexity. It is also a form of organization that is prone to waste and rigidity, which is why efforts are being made to "reinvent" it.

The United States could not be governed without a large federal bureaucracy. The day-to-day work of the federal government, from mail delivery to provision of social security to international diplomacy is accomplished by the bureaucracy. Federal employees work in roughly 400 major agencies, including cabinet departments, independent agencies, regulatory agencies, government corporations and presidential commissions. Yet the bureaucracy is more than simply an administrative giant. Administrators exercise considerable discretion in their policy decisions. In the process of implementing policy, they make important policy and political choices.

Each agency of the federal government was created in response to political demands on national officials. Because of its origins in political demands, the administration of government is necessarily political. An inherent conflict results from two simultaneous but incompatible demands on the bureaucracy: that it respond to the demands of partisan officials but also that it administer programs fairly and competently. These tensions are evident in the three concurrent personnel management systems under which the bureaucracy operates: patronage, merit and executive leadership.

Administrators are actively engaged in politics and policymaking. The fragmentation of power and the pluralism of the American political system result in a policy process that is continually subject to conflict and contention. There is no clear policy or leadership mandate in the American system, and hence government agencies must compete for the power required to administer their programs effectively. Accordingly, civil servants tend to have an agency point of view: they seek to advance their agency's programs and to repel attempts by others to weaken their position. In promoting their agency, civil servants rely on their policy expertise, the backing of their clientele groups, and support from the president and Congress.

Because administrators are not elected by the people they serve yet wield substantial independent power, the bureaucracy's accountability is a major issue. Major checks on the bureaucracy are provided by the president, Congress and the courts. President have some power to reorganize the bureaucracy and authority to appoint political heads of agencies. Presidents also have management tools (such as the executive budget) that can be used to limit administrators' discretion. Congress has influence on bureaucratic agencies through its authorization and funding powers and through various devices (including sunset laws and oversight hearings) that hold administrators accountable for their actions. The judiciary's role in ensuring the bureaucracy's accountability is smaller than that of the elected branches, but the courts do have the authority to force agencies to act in accordance with legislative intent, established procedures, and constitutionally guaranteed rights. Nevertheless, administrators are not fully accountable. They exercise substantial independent power, a situation that is not easily reconciled with democratic values.

Efforts are currently under way to scale down the federal bureaucracy. This reduction includes cuts in budgets, staff and organizational units, and also involves changes in the way the bureaucracy does its work. This process is a response to both political forces and new management theories.