University of California - Los Angeles
Department of Political Science
Center for American Politics & Public Policy
Washington DC Center
Winter Quarter 2014
P.S. 146B. Bureaucracy and Public Management
Wednesday: 6-8:50 pm, Rm 318
Prof. James Desveaux
Office: Rm 327
Hrs: Tr 2-5, and by appointment.
Phone: 974-6362
email: desveaux@ucla.edu
This course is about problems of public sector management, focusing on both
political and technical aspects of managing and controlling public sector organizations.
It’s not possible to cover every aspect of bureaucracy and its management. Hence,
we’ll focus on a few areas, some of which should be known to every student of
bureaucracy, and a couple of others that are not only important, but of topical interest.
Any study of American bureaucracy demands an understanding of the
relationship between politics and bureaucracy. How do public managers navigate in a
political environment where democratic institutions are divided and fragmented? We
live in interesting times, and this class will address some of the issues that are relevant
to our period. In particular, we’ll explore some of the causes that have led to failures in
public management and bureaucracy today, ranging from failures in effectively
implementing regulatory policy at the Securities and Exchange Commission, to
problems in military equipment procurement, to disaster relief (e.g., Katrina), to name a
few. These factors include managing bureaucracy in a system of fragmented political
institutions in an atmosphere of conflict, trust, and change/reorganization. Why is the
task of the bureaucrat in the United States different and, in many ways, more
challenging than it is for bureaucrats in other countries? How do bureaucrats deal with
multiple, competing political masters, and the influence of interest groups? Why is
change so problematic? And why, today, are so many opinion leaders focusing on the
problem of competence in our public service?
The first part of the course, albeit brief, will be devoted to understanding the
evolution of modern bureaucracy in industrial countries, with particular emphasis on
similarities and differences between the United States and Western Europe. What is the
connection between modern bureaucracy, democracy, and the rule of law? What did
modern bureaucracy replace?
Next, we will learn about the difficulties of managing public agencies in the face
of conflicting and often very well articulated interests. What does it mean for a
bureaucrat to be accountable in a political system in which there are so many voices
demanding different things, and where power is fragmented? We’ll examine the
problem of agencies and interests by paying attention to the historical context for these
relationships, as well as trying to understand the structural connections between
bureaucracy and interests.
In the next few classes, we’ll address a problem that’s much in the news these
days, especially during the 2010 and even after the 2012 election campaigns. This has
to do with the putative “size of government.” The consensus on the political right is
that government has expanded beyond what is acceptable, and even some on the left
have joined in the criticism. The answer for many in the United States is to change the
ways that government services are managed and delivered. In fact, the movement to
downsize and give over to the private sector functions that, at least since the New Deal,
have been the preserve of federal agencies, began in earnest even before the presidency
of Ronald Reagan in the 1980’s. Some refer to this as “privatization”, others called it
“contracting out”. The current term describing the phenomenon is “delegated
governance,” wherein programs are not necessarily eliminated, but are given over to
non-governmental actors, either nonprofits or, as is often the case, for-profit enterprises.
We’ll examine some key aspects of the process and consequences of delegating
authority for social programs to nongovernmental actors. Does the evidence support
the claim that taking responsibility away from direct government control is more
effective and efficient? We’ll look at a number of examples, but the primary focus—
following from one of the texts—will be a comparative examination of Social Security
and Medicare (including the 2003 reform establishing a prescription drug benefit for
senior citizens).
Please note that the first couple of classes will mostly consist of lecture, in order
to bring everybody up to speed. Gradually, we’ll move from lecture to seminar. Given
that the course will be held at the same time that a new administration is moving into
Washington, and trying to establish its own priorities, there will be ample opportunity
for discussion.
Requirements
There will be a take-home midterm examination and a final exam. I will discuss
the midterm during the first or second class. It will constitute 45% of your grade. The
in-class final exam will constitute 40% of your grade, and participation will account for
the remaining 15%. The class should comprise no more than 25 students. Therefore, I
expect meaningful participation from everyone. We will certainly have plenty to
discuss.
Readings
There are 2 required books plus a selection of xeroxed readings.
Required Texts:
James Q. Wilson. Bureaucracy: What Government Agencies Do and Why They Do It. Basic
Books, 1989.
Kimberly J. Morgan & Andrea L. Campbell. The Delegated Welfare State: Medicare,
Markets, and the Governance of Social Policy. Oxford University Press. 2011. I suggest that
students purchase these books online, through amazon.com, barnesandnoble.com, etc.
In addition to these books, there are a number of xeroxed readings which will be made
available for you to purchase at U.S. Printing and Copying, Inc., 1725 M Street, NW.
(These readings are followed by an asterisk (*) on the syllabus.)
PLEASE NOTE: At some point in February, I will be out of town during regularly
scheduled class. This class will be rescheduled to a time mutually agreed upon.
Course Outline and Readings
Week I. Jan 8.
Bureaucracy, Personality, and the Rule of Law.
M. Weber, "Legitimate Authority and Bureaucracy."*
Week II. Jan 15.
The emergence of modern U.S. bureaucracy and why it matters.
Daniel P. Carpenter. “The Evolution of Modern Bureaucracy in the
United States.”*
Wilson, Ch. 1, 2.
Week III. Jan 22.
Managing Bureaucracy in a Democracy: Or, The problem of
maintaining effective public organization in the face of conflicting
interests.
Wilson, Ch. 5.
Arthur Maass, “The King’s River Project.”*
Terry M. Moe. “The Politics of Bureaucratic Structure.”*
Week IV. Jan 29.
The Context for How Agencies Operate.
Wilson, Ch. 3-4.
Edward Wyatt. “White House Pushes Vote on Consumer Agency
Chief.” New York Times. Dec 7, 2012
Week V. Feb 5.
The “Problem” with Government.
Morgan & Campbell, Ch. 1-2.
Wilson, Ch 17-18.
Week VI. Feb 12.
Markets vs. Hierarchies: An Agenda for Reform.
Morgan & Campbell, Ch. 3.
Wilson, Ch. 10-12.
Week VI. Feb 19.
Politics, Interests, and Delegated Governance: Medicare and
Prescription Drugs.
Wilson, Ch. 19.
Morgan & Campbell, Ch. 4-6.
Take- Home Midterm Handout
Week VII. Feb 26.
The Intellectual Challenge to Bureaucracy and What This Means.
Morgan & Campbell, Ch. 8.
William G. Ouchi. “Bureaucracies, Markets, and Clans.”*
Take-Home Midterm essay due at beginning of class.
Week IX. March 5.
Constraints, Compliance, and Tasks.
Wilson, Ch. 9
Arthur Stinchcombe, “Bureaucratic and Craft Administration.”
Week X.
March 12.
It’s More Complicated Than It Seems.
Wilson, Ch. 20.
Morgan & Campbell, Ch. 7, 9.
Week XI. March 19
In-Class Final Examination