More Bureaucracy, Please
There are some good points in Matt Yglesias's article noting that plenty of Bush appointees aren't all that well qualified. His point that Michael Chertoff's background as a prosecutor doesn't make him well suited to manage most of the functions of DHS was borne out by the revelation that Chertoff bears responsibility for the delay in FEMA response to Katrina, and may not have understood what he needed to do to trigger the response.
But I think this misses a bit of what's going on.
The head of any large agency is inevitably going to lack expertise in many key functions of the agency. Homeland Security, among its other problems, may be just too large and diverse for anyone to manage, but the same will be true of many agencies -- how likely is it that an Interior Secretary who knows a lot about open space and wetlands issues would also be expert in the Bureau of Indian Affairs issues, for example?
I don't really expect Chertoff to know exactly what form he needs to sign to trigger an "Incident of National Significance" declaration. But I expect him to have a chief of staff who pulls together the meeting that brings that information up to the secretary's level promptly.
In another post, Matt cited Atty General Gonzales as less than well qualified to be the nation's top law enforcement official. And maybe that's true, but if you take all the attorneys general of the last 40 years, he probably comes out in the top half. After all, the office survived John Mitchell, Richard Kleindienst, Ed Meese, William French Smith, even Ramsey Clark -- and Bobby Kennedy wasn't exactly highly qualified for the job.
But if you talk to longtime Justice Department lawyers, they'll say that under Reagan, Bush 41, Clinton -- they basically did their job. And so it didn't really matter whether the AG was a legal powerhouse or a presidential crony. Same in a lot of agencies. That's the secret of bureaucracy. Redundancy and strong systems can accomodate mediocrity. They are structures that can function around personal weaknesses, whether those are at the top or in the middle.
And so what matters most about what's happened in the last few years is that career public servants don't have that same attitude anymore. As Paul Krugman pointed out, in places like FEMA, the FDA, Interior, EPA, top career people are leaving in droves.
There was a terrifying quote in Mike Allen's story about the administration: "Katrina has shown the incredible weakness of the notion that you can have weak players in key spots because the only people who matter are in the White House" -- quoting a Republican lobbyist.
It would make sense to say, "you can have weak players in key spots because the people who matter are the operational bureaucrats." That's a familiar concept of government, it's how you survive an Ed Meese. But the idea that it's White House staff who would compensate for the weakness of individual cabinet officers -- that is really something new. And it's absolutely crazy. It shows a total disdain and disregard for what government does. White House staff can sometimes do the broad-brush development of a policy initiative. But even the most seriously qualified White House staff -- let's say the Program Associate Directors at the Office of Management and Budget -- can't manage an agency or implement an initiative or help it survive.
That's why it's so important to forget about Michael Brown or Chertoff or the individuals involved and focus some attention on the system that made it all possible -- a radical, unprecedented system of centralized, politicized control that is guaranteed to fail.
Update [2005-9-14 22:41:12 by mschmitt]: I don't know where Todd Gitlin and other commentors get the idea that "More Bureaucracy, Please" is my idea of a CAMPAIGN SLOGAN. It is certainly not. It's just a slightly ironic title for a post that makes the point that a respected, professional group of sub-managers with some autonomy are key to making agencies work, and that trying to control these agencies like marionettes from the White House is a recipe for disaster, and is even more significant than the specific qualifications of top people like Chertoff and Brown.
I think the issue of centralized, autocratic control from the White House might have some political salience, but it would take some work to craft the message.
But not everything has to make a good slogan. Some things are just the right thing to do.














I don't really expect Chertoff to know exactly what form he needs to sign to trigger an "Incident of National Significance" declaration. But I expect him to have a chief of staff who pulls together the meeting that brings that information up to the secretary's level promptly
Or, you know, an Undersecretary for Emergency Preparedness and Response who doesn't have his head up his ass.
September 14, 2005 11:14 AM | Reply | Permalink
I think it is a combination of putting political hacks in top management positions in these agencies in combination with the "starve the beast" budget cuts. These two dynamics are what are forcing many of the long term career employees of these agencies out. What we the people end up getting is a smaller less competent government.
The conservatives say the want to model government after corporate America. Nepotism is generally frowned upon at the highest levels of corporate America...they prefer expertise and ability when money is on the line.
September 14, 2005 11:18 AM | Reply | Permalink
You're absolutely right, Mark, but MORE BUREAUCRACY, PLEASE, is probably not the winningest slogan of our time. The problem, obviously, is that Americans--and not only Americans--would rather pin a face on a problem than think systemically. Perhaps this is an automatic deficiency of democratic governments, where the citizens vote for a person, who by definition is to be held "accountable." Fixing the name and the face passes for effective action.
How to name the root of the problem and propose a fix? Minimally, in the face of Bush and the Republican government system that enshrined him, we ought to be saying: We need honest, effective public servants, not cronies, claques, and corruption.Todd Gitlin
September 14, 2005 11:24 AM | Reply | Permalink
That's why it's so important to . . . focus some attention on the system . . . . Mark Schmitt
And how's that to be accomplished, pray tell?
Investigation and analysis must start in the Departments. The media no longer cover Departments and Agencies -- there are virtually no reporters assigned to those beats.
The "fundies" -- Ford, Rockafeller, et al. -- who should have stepped into the breach, haven't. [Oh, my. We might look partisan.]
Thus far, the answer is, "It ain't gonna happen."
September 14, 2005 11:27 AM | Reply | Permalink
Exactly, exactly, exactly.
And I think this points to what was one of Clinton's greatest strengths: the ability to see how systems work, where their strengths and weaknesses are, how to get the most out of them. He appreciated the value of capable individuals, but also appreciated that a complex system cannot depend solely on the heroic efforts, good intentions, gut feelings, etc., of individuals. It just doesn't work.
September 14, 2005 11:37 AM | Reply | Permalink
Right, that is actually a terrible slogan. Something like, "We'll make government work for you" may be a bit better although could definitely be improved.
Most Americans could care less who is in charge of these various government departments. They just want to know that if there is a national disaster people will be evacuated, provided with shelter, food and water. They want to know that troops overseas have proper armor. They want to know that high level officials aren't casually mentioning the name of a covert CIA agent to reporters. In other words they want the government to do its job.
Democrats have a chance here to exploit those failures. Instead of focusing on ideaology or wonkish policy issues, keep it simple. Geroge Bush and the GOP do not care about making sure government works for you, they just care about making the government work their way. We will make government work for you.
September 14, 2005 11:43 AM | Reply | Permalink
Congressional power has of course been eroding for decades (Nixon's impeachment proceedings being one of the few exceptions to that trend), and at the same time, other than the DoD and the recently created DHS, cabinet-level agencies in general have also been losing power to the White House's inner circle. One-party rule compounds the imbalance.
Katrina blew away the curtain of deceit (at least temporarily), exposing the naked boy king surrounded by courtiers and fools.
But in 2006, will enough voters remember this disturbing vision of disfunctional governement?
September 14, 2005 11:54 AM | Reply | Permalink
The problem isn't in delegating, the problem is in follow-up. You can have a chief of staff "who pulls it all together", but if the secretary (or anyone else in authority for that matter) doesn't follow up on direction then delegation is just a mechanism for spreading accountability with deniability.
Bush sitting in Air Force One with Blanco and Nagin and turning to aides and saying "fix it" is a great picture of a can-do guy, but it's the next day when he follows up with the aides that counts.
September 14, 2005 11:56 AM | Reply | Permalink
Nepotism is generally frowned upon at the highest levels of corporate America...they prefer expertise and ability when money is on the line.
Actually it's quite common at the highest levels of corporate America.
Not that it matters. A stable set of civil servants is essential to functioning government.
What has demoralized civil servants, to my knowledge has been a combination of privitization initiatives with the administration simply violating the law--changing the agencies' functions without changing the law.
September 14, 2005 12:00 PM | Reply | Permalink
Well if it is the case Jay (and I don't doubt it is, nothing surpises me anymore) then I can see why the American economy isn't doing well. If these guys pass up better qualified people to employ family and friends, who are lesser qualified, then they aren't very good business leaders in my book.
September 14, 2005 12:14 PM | Reply | Permalink
Remember back to Sept 11 and Guiliani talking about how many times in the past he had been part of training scenarios for city crises and emergencies. He and his people had worked together, could rely on common experience and processes. When they had to improvise on Sept 11 they did so based on experience. Thank goodness.
DHS should have run some serious "drills" with all the players and Chertoff leading if that was to be his role. If this Admin. was going to have a heavy WH presence then they had to play in the drill too. The drill we know about was not serious, at least from reports. Drill results have to be more than paper, they need to lead to real changes.
Failure to practice is an executive failing and no amount of after-the-fact PR can fix it It continues to stun me that in a world of terrorism these drills were not run and treated as serious. We all know that plans on a shelf are of no value in a real woprld crisis.
September 14, 2005 12:22 PM | Reply | Permalink
Judging only from various forms of fiction, it has always struck me that in various other nations--the United Kingdom, Germany, France, some African countries--the permanent bureaucracy, the class of civil servants is held in higher esteem and given greater credit for governmental successes and failures than in the United States. Here we do not seem to recognize the profession as equivalent to e.g. corporate management.
September 14, 2005 2:21 PM | Reply | Permalink
Jay, I think you are right. Perhaps another reason good people are leaving is they see these hacks being appointed over people better qualified and it makes them wonder “why bother” because they see no possibility of advancement. I have seen this many times in different companies. If you want to make the employees angry nepotism is the best way to go.
September 14, 2005 2:38 PM | Reply | Permalink
Remember back to Sept 11 and Guiliani talking about how many times in the past he had been part of training scenarios for city crises and emergencies. He and his people had worked together, could rely on common experience and processes. When they had to improvise on Sept 11 they did so based on experience. Thank goodness
DHS should have run some serious "drills" with all the players and Chertoff leading if that was to be his role. If this Admin. was going to have a heavy WH presence then they had to play in the drill too. The drill we know about was not serious, at least from reports. Drill results have to be more than paper, they need to lead to real changes.
Listen to yourself here. You talk about how the MAYOR of New York had trained for emergency scenarios in that city so that when 9/11 happened he was ready. Then in the case of Katrina you skip over two layers of government and say it was Chertkoff's fault that he didn't practice. Where is Ray Nagin or Gov. Blanco?
September 14, 2005 4:14 PM | Reply | Permalink
So here we are in a situation where an unwieldy and poorly prepared bureaucracy failed. And the call is add some more bureaucracy so it won't fail next time.
This isn't just a bad slogan it's bad management practice.
It is a horrid slogan - right up there with Howard Dean's pledge to "re-regulate" business. No wonder this party keeps losing elections.
September 14, 2005 4:17 PM | Reply | Permalink
I don't know where anyone gets the idea that "More Bureaucracy, Please" is my idea of a CAMPAIGN SLOGAN. It is certainly not. It's just a slightly ironic title for a post that makes the point that a respected, professional group of sub-managers with some autonomy are key to making agencies work, and that trying to control these agencies like marionettes from the White House is a recipe for disaster, and is even more significant than the specific qualifications of top people like Chertoff and Brown.
I think the issue of centralized, autocratic control from the White House might have some political salience, but it would take some work to craft the message.
But not everything has to make a good slogan. Some things are just the right thing to do.
September 14, 2005 7:40 PM | Reply | Permalink
One of my favorite quips defines a bureaucrat as someone who cuts red tape lengthwise.
That said, I think that bureaucracy is essentially a way to institutionalize mediocrity. A solid bureaucracy can keep the ball rolling, if you will, even without solid leadership. At the same time, a solid bureaucracy will resist changes, even those of an inspired leader. In a sense, that’s the basic idea behind any “standard operating procedure.”
September 14, 2005 8:23 PM | Reply | Permalink
Disclaimer: A longer version of this post also appears in response to Reed Hundt's "Not Too Personal" post. One additional factoid: mine is a reasonably well-informed rant. I spent 5 years as lawyer in the Clinton Justice Dept (non-appointee but worked with tons of 'em).
The Brown drama is just the latest chapter in the fiasco that is the constant display of this Administration's contempt for the Executive branch. It has employed a brilliant termite-like strategy to destroy the executive branch from within by getting rid of the careerists who know how the government is supposed to be run -- by moving them to marginal positions, forcing them out, or making early retirement far more attractive than continuing to sojourn in hell -- outsourcing whatever they could, and enriching their friends at every turn.
This is the Admin. that brought you Attorney General John Ashcroft who couldn't beat a dead man in a Senate race, who held prayer services daily at the Department of Justice and who hid an art deco statue of Justice behind a curtain because her breast was exposed. Succeeding Ashcroft in the top law enforcement post was Al Gonzales, who thinks the Geneva Convention is quaint, and who has no prior criminal law experience -- other than his consistent failure to provide then Gov. Bush any counsel about death row prisoners whose sentences should have been commuted.
Then there's Brown. This is the Administration that denounces affirmative action as "quotas" and "preferences," right? Yet with Brown, you could not find someone who more perfectly embodies everything they claim to detest about affirmative action. Kinda reveals their true issue with a/a ... it's not whether the woman or the person of color is qualified, it's that that woman or person of color is taking up the slot where their unqualified guy could be!
The Administration has two problems with bureacracy that combined to create the perfect storm that is this Katrina debable: 1) their contempt for careerists, and their mistaken belief that they can do what the bureacrats do as well or better ... how many politicals were roosting at FEMA? 4? 5? at the most senior level there were too many politicals and not enough careerists; 2) they distrust and suspect the motives/motivations of the careerists, so they keep them way out of the loop. This has happened to some greater or lesser degree in previous Administrations, but not to the extremes to which this Admin. takes it, which is why there has been a huge outflow of careerists from the federal bureaucracy, and why we'll be paying a price for that for years to come.
If the Executive Branch, like the Army, runs on its stomach, the Bush Admin. has subjected it to stomach stapling, and the body is no longer able to derive enough nourishment to fulfill its basic functions. Hence the need for life support, or in Gov. Blanco's case: James Lee Witt.
September 15, 2005 6:40 AM | Reply | Permalink
I then jumped to DHS because the scope of this disaster went well beyond NO and LA, it went to other cities and states. The bulk of the resources that would make the life and death and quality of life differences were predominately at the federal level.
FEMA as the organization with the mission to secure the homeland should have a major role in seeing that Govrs and large city mayors are doing the serious "practice " sessions. I hold FEMA responsible to ensure that we have a system that works from top to bottom.
One of the FEMA/DHS jobs is to do a very early on the ground assessment. An accurate assessment would say that the place was a mess and needed everything government and corporate could provide. Why didn't that happen?
Quality has to be improved up and down the line, and FEMA has take the lead.
September 15, 2005 3:47 PM | Reply | Permalink
In important ways, Bush embodies mediocrity and speaks for expedient authoritarianism. Like it or not, these are core aspects of his political appeal. A strong source of his political support are angry white males, who went to college, but did not graduate; another source of political support are mediocre, greedy corporate executives, whose primary purpose in life is securing their own high incomes and status, at the expense of lesser humans among their employees and customers.
It would be nice if "good government" had a constituency, as it did in the Gilded Age and the Progressive Era, when the Civil Service and some key Federal Agencies were established. It would be nice, if more people, especially among politicians and leaders, cared about efficiency -- if it were more urgent and less boring and the leaders had both the imagination and the formative experiences to have some sense of the consequences of their actions.
Calls for better performance, however, appear to fall on deaf ears. Democrats are resigned; independents mostly do not pay any attention; Republicans are living in an alternative universe. Bush has not found Osama Bin Laden; Bush has started a war, he cannot win; Bush's Iraqi Reconstruction has failed miserably, Bush turned record surpluses into record deficits in a matter of hours. The country's infrastructure is decaying; wages are stagnating, while corporate profits soar; health care costs skyrocket, the trade deficit widens, but the very wealthy are doing quite well, thank you.
Personally, I'd be ready for class warfare, but most people seem to be willing to regard stagnating wages, increasing income volatility, rising health care costs to be mysteries, rather than policy consequences. I'd be ready for "taking back the government", but, hey, that slogan didn't win Howard Dean anything. Bush's determination to suspend Davis-Bacon so construction workers can be paid less that $9/hour, and to spend $200 billion with Halliburton, Bechtel and the like will provide a spectacle of corruption. Will anyone care? Will any of Bush's supporters -- the poor, religious types, who also follow fake televsion preachers, or the rich parasitical suits in giant corporations, to take two stereotypical examples -- care?
Bush leads those, who want mediocrity and expedient authoritarianism, and those things are not compatible with administrative efficiency, which requires deliberation and intelligence and some degree of genuine meritocracy. His polls are low, but he's not running for anything. We're pretty much screwed, is how I see it.
September 15, 2005 7:02 PM | Reply | Permalink
An exemplary post, Mr. Schmitt. As so often, your thoughts rise above the general commentary and improve our (or anyway, my own) understanding. Lord knows what we will do to improve the current state of government -- though winning every election is sight would probably help -- but at least you offer some tools, some highly useful perspectives. Thanks again.
September 16, 2005 6:00 AM | Reply | Permalink