The Public Policy Process WEEKS 6 AND 7: OFFICIAL AND UNOFFICIAL ACTORS IN THE POLICY PROCESS
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1 The Public Policy Process WEEKS 6 AND 7: OFFICIAL AND UNOFFICIAL ACTORS IN THE POLICY PROCESS
2 Today s grammar question: Well, actually he didn t do it he paid a painter $200 to do it for him. (Councilman Franz s blog) What s up with this comma?
3 The moral of our story
4 The Next Assignment: The Policy Environment See the assignment on the website: ment3.pdf File: lastname_environment.doc or.docx or.rtf New due date! Friday, February 26 I may have been too strict about evidence in marking memos government data are OK Bonus! For every writing error in my comments back to you, I will give you a point (if you point out the errors!).
5 Objectives for this section Understand official and unofficial actors in the policy process. Understand the difference between official and unofficial actors. Prepare to understand the role of interest groups and power in policy making.
6 Official and Unofficial Actors in Public Policy What are official actors? What are unofficial actors? What is the difference between official and unofficial actors? Are one set of actors more legitimate than another? The policy process involves the interaction of these actors within the policy environment That policy environment is characterized by static and dynamic features of our system
7 The Traditional View of Formal Institutions Automatically have power and authority Are relatively stable monolithic? Have the final say in policy debate Their decisions are accepted Interests are in the role of supplicants This is the classic institutionalist approach
8 A More Realistic View Power and authority must be earned and reinforced Are broadly stable, but are not at all monolithic Do not issue the final word decisions often lead to countermobilization Countermobilization is proof that decisions aren t unquestioned Bureaucratic delay or shirking Disobedience Interests and members of formal institutions work together, not apart. This looks more like the behaviorist approach
9 Hierarchy? Or Network? The C0nstitution and the People (really?) Executive Legislative Judicial The Bureaucracy Lower Courts
10 Hierarchy? Or Network News Media Agencies Mediated by policy brokers or policy entrepreneurs News Media Legislators Legislators Agencies Coalition 1 Coalition 2 Groups Experts Groups Experts Parties Parties
11 Official Actors Legislative branch Executive branch (president, governor) The bureaucracy Judicial branch (courts)
12 Legislative Branch Article I of the Constitution. Why? Does this rationale still hold today? Make laws Lots of laws introduced, few pass (p. 51) Has a large staff to lighten workload Hold hearings For lawmaking For other reasons Perform oversight over the executive branch Approval of appointments Oversight hearings Do casework for constituents. What are the power advantages and disadvantages of the legislative branch?
13 Legislative Activity 105th Congress ( ) 110th Congress ( ) House Senate House Senate Bills 4,874 2,655 7, Joint resolutions Concurrent resolutions
14 The nature of legislation Symbolism Currying favor with constituents Multiple bill introductions How do we know what s on the agenda just from a count of bills? Why does it matter what s on Congress s agenda?
15 Organization of the Legislature Parties Elect the presiding officer or speaker Determine who sits on committees Committees Screen bills Set the legislative agenda Chairs are very powerful Is the Congress centralized? Or decentralized? Evidence in favor Evidence against
16 Where would you take your problems if you wanted Congress to pay attention to them?
17 Public Policy and Critiques of the Legislature Are legislatures out of touch with the people? Are legislatures too slow? Do they suffer from gridlock? Members and reelection Congress as a decentralized institution Congress as a localized, constituencyserving institution examples?
18 Implications Gridlock, or deliberation, is designed into the legislative process. It s unlikely that Congress will make big sweeping policy changes without a social movement or a major prod from the executive branch/. Congress may focus on politically safe casework, oversight, and distributive spending. Field hearings as theatre The House, in particular, may favor local interests over national interests Over 80% of Americans think that incumbents should lose their seats Yet, the vast majority of incumbents will be reelected
19 The Executive Branch Chief Executive (President, Governor) Staff (about 3000 appointed officials) We consider the civil service ( bureaucracy ) separately
20 Presidential Advantages Over Congress The veto power The head of a unitary branch Considerable power shifted toward the executive branch during The Civil War The New Deal World War II Cold War Great Society Attracts a lot of media and public attention can go public The Bully Pulpit
21 Constraints on the President s Power Inability to force action. Sheer size of his staff. Going native Turnover The will of the other branches. Appointments Courts The permanent bureaucracy. Result: the president may be more involved in agenda setting than in selecting alternative policies.
22 Agencies and Bureaucrats What is a bureaucracy? Division of labor Impersonal, unbiased rules Staff expertise Obvious hierarchy What is a civil servant? Selected on merit What do you think motivates bureaucrats in public service?
23 What Do Government Agencies Do? Provide public goods What is a public good? Provide services that people may not want provided by the private sector Electricity Phone Water
24 Is the Bureaucracy too Big? 1999: 2.79 million civilian employees $1.8 trillion budget. 4.47% of Americans work for all government (2.09% work for the federal government), according to U.S. BLS million civilian employees (slight decline) About $3.0 trillion budget 4.65% of Americans work for all government (1.88% work for the federal government)
25 Bureaucracy and Accountability Bureaucrats are not elected, yet they make policy. Yet, bureaucrats are supposed to act in the public interest. The problem: what is the public interest? Bureaucrats are given more or less discretion based on how sensitive an issue is. The problem of agency capture
26 The Courts Hamilton: The least Dangerous Branch The courts are neither impotent nor all powerful. The Courts do make policy. Rely on judicial review Rely on enforcement by other actors executive and legislative branches, private actors. Why are most court decisions respected? The courts are undemocratic institutions But, was our republic designed as a democracy? How does one balance popular will with constitutional limit?
27 Implications for policy Policy change is slow, and takes time to develop Coalition building is important The institutions are important gatekeepers, but are not the only participants
28 Unofficial Actors
29 Interest Groups Why are groups so important? Can individuals make change acting alone? Aggregation of resources Aggregation of members=power Forming advocacy coalitions Groups or special interest groups are sometimes viewed as a bad thing. Why?
30 Interest Groups: Background Have been around a long time Madison mentions them in Federalist 10 A relatively small number of groups until the 1960s Major growth in interest groups in the 1960s. Any ideas why?
31 Kinds of Interest Groups Institutional interest groups Membership because you belong to a particular interest group, such as NCSU graduate students Membership interest groups Groups you choose to join
32 Reasons for Rapid Interest Group Growth Many government programs=many clients Lack of legal constraints against group formation in a democracy Increasing number of public demands Resources Rights
33 Types of Membership Groups Economic (private interest). Are primarily interested in benefits for members. Do you think they will at least argue that, when their members benefit, the public benefits? Public interest groups. Seek to create broad benefits for everyone. Hard to define a single public interest. Other types of groups. Churches, for example.
34 Why Do People Join Groups? To gain some sort of a benefit. Economic well being or gain. The desire to do good. The desire to belong to or identify with a group. The desire to find a way to make one s voice heard. To get the freebies: magazines, calendars, etc.
35 What Do Groups Do? Lobbying (providing information) Support candidates Money Votes Mobilize members to take action Sue in court Public protests and direct action
36 Groups and Power We all know that some groups have more power than others What is power? Why do some groups have more power than others?
37 Three Levels of Power An actor ( A ) makes actor B do something he or she doesn t want to do. A keeps B from doing the things he or she wants to do. These are what we call the two faces of power. What about the third face of power?
38 The Third Face of Power A creates and maintains a social structure in which B cannot even imagine taking action to pursue his or her own interests. This sounds like a conspiracy (or Marxist false consciousness but is more subtle than this. This is a good way to describe power relations in the United States.
39 Differences in Group Power Resources Money Information Size of membership Reasons for membership Direct economic incentives Material inducements Congruence of goals with prevailing ideas and values
40 Political Parties They aggregate preferences into broad coalitions They organize the legislative branch They provide opportunities for participation They help integrate national and state politics
41 There are Many Political Parties The Democratic and Republican presidential parties (2). The Democrats and Republicans in the House (2). The Democrats and Republicans in the Senate (2). The Democrats and Republicans in the upper and lower houses of very state except Nebraska (which only has one house of the legislature) (99). The Democratic or Republican Gubernatorial party (50). Total: 155 parties not entirely separate or unique.
42 What Does the Party System Mean? Conflicts over partisan and ideological issues that influence public policy (is this bad?) The need for bipartisan cooperation on some issues to get anything done. Some states have very dominant parties Even then, the parties then divide into factions
43 Think Tanks Research organizations that provide information on public policy. Their goals. To influence public policy, often in a way consistent with their ideological perspective. Examples: Urban Institute tends to be liberal; American Enterprise Institute, conservative. To serve the public interest with research and information for policy makers. Why do I cast doubt on their research?
44 Think Tanks Their numbers have grown why? Desire for influence in politics Ideological sponsorship The proliferation of particular interests What s the difference between think tanks and interest groups Organization Goals Techniques for asserting influence
45 The News Media Serve as watch dogs that keep track of government This is the role assumed in the first amendment This is sometimes referred to as muckraking or investigative journalism
46 What does the news emphasize? Personalized news Dramatized news Fragmented news Normalized news How do news biases influence public policy? Distorted agendas Distorted facts This is not about ideological bias
47 How Effective Are the Media As Watch Dogs? Very little news (<1%) is the result of investigative journalism. Most news in an average news paper is wire service copy, press releases, etc. Much of what is printed or aired is because of the beat system and personal relationships with sources. Is the internet going to be a better alternative source of news?
48 Another View: Journalism as Policy Analysis
49 Next Week: Agenda Setting
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