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POL 313 |
The Institutional
Connection |
We now begin an exploration of the
institutional connection, the dynamic relationship between the presidency
and the other institutions of American
government--the Congress, the judiciary, and the bureaucracy.
In a sense, we have explored some of
this before
when we examined the constitutional
roots of the presidency.
Remember that there are two
constitutional organizational concepts which influence the dynamics
of the behavior between institutions
in American government:
separation of powers
checks
and balances
Many, of
course, argue that the combination of these concepts
leads to separate institutions sharing
powers.
When these powers are
"shared", the result is often
a continual battle between
institutions.
One of the best ways to see the
operation of American government from
this perspective is the systems
paradigm.
When viewed from this perspective, we
discover the
many facets of interplay between the
branches of government:
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President/ |
Congress |
Courts |
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application |
chief executive |
oversight |
judicial review |
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creation |
State of the Union |
legislating |
judicial review |
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adjudication |
appointment |
advise and consent |
adjudicating |
Thus, over the next few class periods, we will explore the interactions
between the
institutions of American government as they
make, carry out, and evaluate, public decisions.
First, let's refresh our memory about the
organizational structure of the executive branch.
For the most part, I will assume that
you know about the concept of bureaucracy.
The Concentric Circle
Approach
to the Organization of the Presidency
We have to distinguish between the President
(the person who occupies the office)
and the presidency (the office and all its attendant parts)
Envision these rings as concentric circles which expand
outward from the president.
The closer to the President, the more power and influence,
the farther away, the less power and influence
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The Inner Ring (A purely analytic concept referring to the closest
associates of the President) |
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The White House Staff and Executive Office Office of Management and Budget OMB is of special importance and
its primary functions are: 1) the preparation of the budget, 2) legislative clearance; and 3) program performance evaluation |
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Advisory Councils
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The Bureaucracy Executive Departments
National
Labor Relations Board, the
Securities and Exchange Commission) Independent Agencies |
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Presidential Commissions PC on the Space Shuttle Challenger Accident
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The Baker-Hamilton Iraq Study Group The Iraq Study Group was created
by the US Institute of Peace |
The "Political
the creation of the career civil service
and thus a "permanent" bureaucracy
which outlasts a particular president's
administration has thus set up
the potential for conflict within the executive branch of government.
presidential appointees vs. career bureaucrats
the two parts of the bureaucracy have
very different agendas
and very different lines of
accountability
presidential appointees are responsible
to the president and as such
are involved in articulating and
implementing administration policy goals and objectives
career bureaucrats are more concerned
about the other two parts
of the "cozy triangle"
(congressional committeepersons and
interest groups) and protecting
"cozy triangle" interests
Most especially, career bureaucrats are
generally interested in
expanding the power and influence of
their agency (a rational goal
for a bureaucratic actor) even if that
runs contrary to
the public's interest (and/or the
President's interest)
It is thus not uncommon for the
President and his appointees to
be battling career bureaucrats!
What advantages does a president have
in this situation?
Can a career bureaucrat just "wait
out" any administration?
Some president's have attempted to
utilize the threat of
bureaucratic reorganization to get recalcitrant bureaucracies
to do what the president wants!
Generally these threats have not been
very effective
as the threat of reorganization is a problem
for other parts of the "cozy triangle"
and opposition from congresspersons
whose influence may be lessened
via the reorganization try to block any
attempts to change the status quo.
presidents can threaten to cut off
funding of the agency---
Congress often refuses to do this
a president may hope that "benign
neglect" may help the agency
to knuckle to the president's wishes
usually all three of these are doomed
to failure
this is especially true when we have
divided government
however it is also true when one part
control both branches!!
the power of the triangle trumps the power of party
loyalty!!