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The central role that bureaucracy plays in the policy process is played by individuals, namely, by subject matter experts and managers we call political executives. These executives do not play their role in a vacuum, of course, but in a context defined by three key forces-the organizational environment of bureaucracy itself; our governing philosophy stressing responsiveness, respect for individual rights, and accountability; and the demands of the people and the institutions those people have created to govern themselves. This book explores how these three forces collide and how the resulting collision shapes the way in which bureaucracy makes policy, as well as the final product of that policy making process. It provides an in-depth look at each of these forces, with chapters specifically devoted to how bureaucrats interpret their role in the policy process, how the organizational environment influences their ability to play that role, and, most of all, to the interactions between bureaucrats and the institutions of what we call the Constitutional government: the President, the Congress, and the courts. It does this, all the while reminding us that fitting bureaucracy into a society that views itself as self-governing is no easy task.

Tabla de contenidos provista por Syndetics

• Preface(p. xiii)
• Acknowledgments(p. xv)
• 1 Promises, Promises: The Why and How of Bureaucracy(p. 1)
• Keeping the Promises: The Why of Bureaucracy(p. 1)
• Gathering and Using Information: The How of Bureaucracy(p. 4)
• Find the Experts and Get the Information(p. 4)
• Acquiring Expertise: Hire It(p. 5)
• Acquiring Information: Research and Investigation(p. 5)
• Using Knowledge: Advice, Rules, and Enforcement(p. 6)
• Using Bureaucratic Knowledge I Information and Advice(p. 6)
• Using Bureaucratic Knowledge II Writing Rules(p. 9)
• Using Bureaucratic Knowledge III Enforcing the Rules(p. 9)
• In Summary(p. 11)
• The Dilemma of Bureaucracy: First Promise(p. 11)
• Responsiveness(p. 12)
• Respect for the Rights of Individuals(p. 13)
• Accountability(p. 14)
• But Don't Forget Effectiveness(p. 14)
• The Dilemma of Bureaucracy Becomes Real: Juggling Responsiveness, Rights, and Effectiveness(p. 15)
• In Summary(p. 17)
• Summary and Conclusion(p. 17)
• 2 The Individual Bureaucrat: Somebody Has to Do All That Work(p. 20)
• A Tale of Two Bureaucratic Cities(p. 20)
• The City of the Policy Specialists(p. 20)
• The City of the Political Executives(p. 21)
• The Mandate Revisited(p. 22)
• Effectiveness, Responsiveness, Respect for Individual Rights, and Accountability in the City of Policy Specialists(p. 23)
• Effectiveness and the Policy Specialists: Faith in What They Know(p. 24)
• We Train Them That Way(p. 24)
• The Job Reinforces Their Faith(p. 26)
• In Summary(p. 27)
• Responsiveness and the Policy Specialists: It Is the People's Government, After All(p. 28)
• Effectiveness and Responsiveness: Peaceful Coexistence(p. 28)
• So, Who You Gonna Listen To, Anyway?(p. 30)
• Responsiveness to the President(p. 31)
• Responsiveness to the Congress(p. 31)
• Responsiveness to the Courts(p. 32)
• Responsiveness to the Public(p. 32)
• In Summary(p. 33)
• Individual Rights and the Policy Specialists: The Courts, Administrative Law, and a Little Sensitivity(p. 34)
• Accountability and the Policy Specialists: Living With an 800-Pound Gorilla(p. 35)
• In Summary(p. 36)
• Effectiveness, Responsiveness, Respect for Individual Rights, and Accountability in the City of Political Executives(p. 37)
• Responsiveness and the Political Executives: We Represent the People's Representatives(p. 38)
• Responsiveness to the President(p. 38)
• Responsiveness to the Congress(p. 39)
• Responsiveness to the Courts(p. 41)
• Responsiveness to the People(p. 41)
• In Summary(p. 42)
• Effectiveness and the Political Executives: They, Too, Have Faith in What They Know(p. 42)
• We Train Them That Way(p. 44)
• The Job Reinforces It(p. 44)
• In Summary(p. 46)
• Individual Rights and the Political Executives: The Courts, Administrative Law, and a Little Sensitivity Redux(p. 47)
• Accountability and the Political Executives: Same Gorilla, but Closer to Home(p. 48)
• In Summary(p. 49)
• Summary and Conclusion(p. 50)
• 3 Structure: We've Got to Get Organized(p. 53)
• The Principle of Hierarchy(p. 56)
• What Is Hierarchy?(p. 56)
• Why Hierarchy?(p. 58)
• But What About Specialization?(p. 59)
• The Impact of Hierarchy(p. 60)
• Hierarchy and Organizational Communication: Sometimes the Emperor Is Naked(p. 60)
• Separating Authority from Knowledge(p. 66)
• Absolute Power May Not Corrupt Absolutely, but...(p. 68)
• Hierarchy, Political Executives, and the Bureaucratic Mandate(p. 69)
• The Impact of Specialization(p. 71)
• Surrounding the City: The Federal Housing Administration Guarantees Suburbanization(p. 71)
• The Desert Really Did Bloom: The Bureau of Reclamation and Western Agriculture(p. 72)
• Specialization, Policy Specialists, and the Bureaucratic Mandate: Tunnel Vision and the Law of Unintended Consequences(p. 73)
• Of Energy Dependence and Redlining: The FHA and Suburbanization(p. 74)
• The Desert Bloomed, but at What Cost?(p. 76)
• In Summary(p. 79)
• The Paper Structure(p. 80)
• The Impact of Program Location Decisions: It's a Matter of Attitude(p. 81)
• Professionals Believe(p. 82)
• Politics Counts(p. 84)
• They Are People Too(p. 86)
• Who Has Final Authority?(p. 89)
• In Summary(p. 92)
• Summary and Conclusion(p. 93)
• 4 Some Agencies Are More Powerful Than Others: Expertise, Politics, and Agency Power(p. 97)
• Sources of Agency Power(p. 98)
• Power from the Inside: Knowledge, Cohesion, and Leadership(p. 98)
• Knowledge(p. 98)
• Cohesion(p. 99)
• Leadership(p. 100)
• The Advantage of Always Being on Duty(p. 102)
• Power from the Outside: Clientele, Congress, and the Chief(?)(p. 102)
• Power From the People(p. 103)
• Power From the People's Representatives(p. 103)
• Power From the Chief and His-Someday Her-Teams(p. 104)
• In Summary(p. 104)
• Constraints on Agency Power(p. 105)
• Internal Constraints: Ethics, Competition, and Representativeness(p. 105)
• Ethics(p. 105)
• Competition(p. 106)
• Representativeness(p. 106)
• External Constraints: Politics and the Law(p. 107)
• Political Constraints: The Impact of Power and Powerlessness(p. 107)
• Legal Constraints: Administrative Law and the Courts(p. 108)
• In Summary(p. 109)
• Resources Meet Constraints: It's a Matter of Subject Matter(p. 109)
• Looking Across Categories: A Question of Boundaries(p. 110)
• Looking Inside Categories: Questions of Politics and Power(p. 113)
• In Summary(p. 114)
• Classifying Policy Areas: Complexity, Controversy, and the Politics of Public Policy(p. 115)
• Controversy and the Politics of Public Policy Making(p. 117)
• Complexity and the Politics of Public Policy Making(p. 121)
• Controversy and Complexity Interact(p. 123)
• Controversy and Complexity in Concert(p. 124)
• Controversy and Complexity at Odds(p. 125)
• Controversy and Complexity: Some Complications(p. 130)
• Policy Areas and Agency Power(p. 131)
• Controversy and Complexity in Concert: The Strongest and the Weakest(p. 131)
• Controversy and Complexity at Odds(p. 133)
• Summary and Conclusion(p. 134)
• 5 Bureaucracy and the Presidency: Hail to the Chief (Sort Of)(p. 139)
• Not That Often: Motivation, Resources, and a Lack of Presidential Attention to Bureaucracy(p. 140)
• Motivation, or Rather, the Lack Thereof(p. 140)
• Time, Knowledge, and Interest: How Can a President Keep Track?(p. 141)
• In Summary(p. 142)
• An Agency-Level View of the White House: Suspicion, Suspicion, Suspicion(p. 143)
• Plenty of Insults, and Even a Few Injuries(p. 143)
• It's All a Matter of Timing(p. 145)
• "And He Doesn't Know the Territory"(p. 146)
• In Summary(p. 146)
• How Does the President Influence Bureaucracy?(p. 147)
• Influencing the Organizational Environment I A Matter of Management(p. 148)
• The White House Staff(p. 148)
• The Political Executives(p. 149)
• In Summary(p. 159)
• The Institutionalized Presidency(p. 161)
• In Summary(p. 168)
• Influencing the Organizational Environment II A Matter of Structure(p. 170)
• Influencing the Budgetary Environment: Agencies Need Money(p. 176)
• Influencing the Legal Environment: Agencies Need Authority(p. 184)
• Summary and Conclusion(p. 190)
• 6 Bureaucracy and the Congress: The Committees You Shall Always Have With You-Unless They End Up Being Against You(p. 196)
• Congress: Members, Committees, and the Exercise of Congressional Power(p. 196)
• Motivation, Resources, and Subcommittee Attention to Bureaucracy: These Folks Come to Play(p. 202)
• Motivation and Plenty of It(p. 202)
• An Abiding Interest and Time to Follow It(p. 205)
• Subcommittee Knowledge: Informed Amateurs and the Process Called Oversight(p. 206)
• So, Are These People Experts?(p. 206)
• What's Going on at the Agencies? Oversight, or at Least Half of It(p. 209)
• In Summary(p. 221)
• Fear, Respect, Community, Power, and Legitimacy: A Recipe for Cooperation(p. 222)
• The Human Side of the Equation: Fear, Respect, and a Sense of Community(p. 222)
• The Institutional Side of the Equation: Power and Legitimacy(p. 225)
• In Summary(p. 227)
• How Does the Congress Influence the Bureaucracy?(p. 228)
• Influencing the Organizational Environment I Managing From Outside the Box(es)(p. 228)
• Influencing the Organizational Environment II Subcommittees and Bureaucratic Structure(p. 231)
• Influencing the Budgetary Environment: Authorizing, Appropriating, and Instructing(p. 232)
• Influencing the Legal Environment: Remember, They Do Call Them Lawmakers(p. 235)
• Statutory Authority Itself(p. 236)
• Statutory Interpretation(p. 239)
• Executive Orders(p. 239)
• Courts and Their Decisions(p. 240)
• In Summary(p. 242)
• Summary and Conclusion(p. 243)
• 7 Bureaucracy and the Public: Supporters, Critics, and Hey, Where's the Rest of Us?(p. 248)
• Agencies and Their Supporters(p. 249)
• Agencies and Their Clientele Groups I: Normally, We Is Us(p. 250)
• It Does Matter What You Know(p. 251)
• It Also Matters Whom You Know(p. 253)
• Sometimes It Even Matters How You Feel(p. 254)
• In Summary(p. 255)
• Agencies and Clientele Groups II: Sometimes, We Is Us and Them(p. 256)
• Social Service Agencies and Their Clientele Groups: Not Much to Build On(p. 256)
• Regulatory Agencies and Their Clientele: From Capture to Conflict(p. 257)
• Agencies and Professional Associations(p. 261)
• It Matters a Lot What You Know(p. 262)
• It Matters Some Whom You Know(p. 264)
• It Matters How You Feel(p. 266)
• In Summary(p. 267)
• Agencies and Individual Policy Experts (IPEs)(p. 268)
• It Certainly Matters What You Know(p. 268)
• It Matters a Great Deal Who Knows You(p. 269)
• It Matters How You Feel(p. 270)
• In Summary(p. 270)
• Agencies and Their Critics(p. 271)
• Agencies and the General Public(p. 274)
• How Does the Public Influence Bureaucracy?(p. 277)
• Indirect Public Influence(p. 278)
• Direct Public Influence(p. 278)
• The Informal Side(p. 279)
• The Formal Side(p. 279)
• The Rare Case of Direct Program Responsibility(p. 280)
• Summary and Conclusion(p. 281)
• 8 Bureaucracy and the Law: Sworn to Uphold(p. 286)
• Everyone Swears to Uphold the Constitution(p. 287)
• Agency Information Gathering and the Fourth Amendment(p. 287)
• Why Do We Lengthen That Fourth Amendment Leash for Administrators?(p. 288)
• How Do We Lengthen the Fourth Amendment Leash for Administrators?(p. 291)
• Administrative Information Gathering and the Fifth Amendment(p. 292)
• A Note on the Exclusionary Rule(p. 294)
• The Fifth and Fourteenth Amendments and Due Process of Law: Protection From Arbitrary Government(p. 295)
• When Is Due Process Due? Defining Life, Liberty, and Property(p. 295)
• What Process Is Due? A Fair Chance to Be Heard(p. 298)
• In Summary(p. 300)
• Everyone Swears to Uphold the Law(p. 301)
• Enabling Statutes(p. 301)
• Administrative Law(p. 302)
• Why and When Do We Need Procedures?(p. 302)
• Defining Responsiveness, Respect for Individual Rights, and Accountability in the World of Administrative Decision Making(p. 304)
• What Kind of Procedures(p. 306)
• Who Decides Which Procedures?(p. 309)
• In Summary(p. 311)
• The Administrative Procedure Act(p. 312)
• In Summary(p. 317)
• Administrative Law: The Summary(p. 318)
• The Law of Government Liability(p. 319)
• Sovereign Immunity(p. 320)
• When Is Government Liable?(p. 321)
• Exceptions to the Tort Claims Act(p. 322)
• The Liability of Individual Government Officials(p. 326)
• In Summary(p. 328)
• Summary and Conclusion(p. 329)
• 9 Bureaucracy and the Courts: Judicial Review of Agency Action(p. 333)
• When Can a Citizen Sue His or Her Government?(p. 334)
• The Nature of Courts(p. 334)
• Congress and Access to Judicial Review of Administrative Action(p. 336)
• Preclusion of Review(p. 336)
• Agency Action Committed to Agency Discretion by Law(p. 337)
• In Summary(p. 338)
• Courts and Access to Judicial Review of Administrative Action(p. 338)
• Wrong Person: A Question of Standing(p. 339)
• Wrong Time: You're Too Late! Or Was That Too Early?(p. 341)
• In Summary(p. 345)
• When Can a Citizen Sue: The Summary(p. 346)
• Beating the Government and the Odds: The Scope of Judicial Review of Administrative Action(p. 346)
• What to Review?(p. 347)
• When Should a Judge Say No?(p. 348)
• Judging in an Ideal Administrative World(p. 348)
• Judging in the Real Administrative World(p. 350)
• In Summary(p. 355)
• Some Final Observations on Judicial Review of Policy Decisions(p. 355)
• Summary and Conclusion(p. 356)
• 10 The Environmental Protection Agency: Our Better Angels or Promise Breakers(p. 360)
• The Social and Political Context(p. 361)
• The Agency(p. 363)
• External Pressure(p. 369)
• The Bureaucrats Versus the Politicians(p. 381)
• Index(p. 389)
• About the Authors(p. 399)

Notas de autor provistas por Syndetics

Dennis D. Riley is professor of political science at the University of Wisconsin, Stevens Point
Bryan E. Brophy-Baermann is visiting instructor in government at Lawrence University in Appleton, Wisconsin