Presidents, responsiveness, and competence: Revisiting the "Golden Age" at the Bureau of the Budget

Political Science Quarterly

Volumn 119, Issue 4, 2004, Pages 633-654

  Dickinson, Matthew J ^a   Rudalevige, Andrew ^b,c  

^a MIDDLEBURY COLLEGE   (United States)

^b DICKINSON COLLEGE   (United States)

^c PRINCETON UNIVERSITY   (United States)

Author keywords

[No Author keywords available]

Indexed keywords

EID: 11244296972     PISSN: 00323195     EISSN: None     Source Type: Journal    
DOI: 10.1002/j.1538-165X.2004.tb00533.x     Document Type: Review

References (119)

1. Succinct overviews include James P. Pfiffner, "OMB: Professionalization, Politicization, and the Presidency" in Colin Campbell and Margaret Jane Wyszomirski, eds., Executive Leadership in Anglo-American Systems (Pittsburgh, PA, University of Pittsburgh Press, 1991); and Judith E. Michaels, The President's Call: Executive Leadership from FOR to George Bush (Pittsburgh, PA, University of Pittsburgh Press, 1997), 70-77.
2. Succinct overviews include James P. Pfiffner, "OMB: Professionalization, Politicization, and the Presidency" in Colin Campbell and Margaret Jane Wyszomirski, eds., Executive Leadership in Anglo-American Systems (Pittsburgh, PA, University of Pittsburgh Press, 1991); and Judith E. Michaels, The President's Call: Executive Leadership from FOR to George Bush (Pittsburgh, PA, University of Pittsburgh Press, 1997), 70-77.
3. Margaret Jane Wyszomirski, "The De-Institutionalization of Presidential Staff Agencies," Public Administration Review 42 (September/October 1982): 455. See also the testimony of former OMB official Dwight Ink, "Is the OMB Fulfilling its Mission?" House Committee on Government Reform, Subcommittee on Government Management, Information, and Technology, 7 April 2000.
4. Margaret Jane Wyszomirski, "The De-Institutionalization of Presidential Staff Agencies," Public Administration Review 42 (September/October 1982): 455. See also the testimony of former OMB official Dwight Ink, "Is the OMB Fulfilling its Mission?" House Committee on Government Reform, Subcommittee on Government Management, Information, and Technology, 7 April 2000.
5. Terry M. Moe, "The Politicized Presidency" in John Chubb and Paul E. Peterson, eds., New Directions in American Politics (Washington, DC, Brookings Institution, 1985); Michael Sanera, "Implementing the Agenda" in Stuart M. Butler, Michael Sanera, and W. Bruce Weinrod, eds., Mandate for Leadership II (Washington, DC, Heritage Foundation, 1984); David A. Stockman, The Triumph of Politics (New York, Harper and Row, 1986).
6. Terry M. Moe, "The Politicized Presidency" in John Chubb and Paul E. Peterson, eds., New Directions in American Politics (Washington, DC, Brookings Institution, 1985); Michael Sanera, "Implementing the Agenda" in Stuart M. Butler, Michael Sanera, and W. Bruce Weinrod, eds., Mandate for Leadership II (Washington, DC, Heritage Foundation, 1984); David A. Stockman, The Triumph of Politics (New York, Harper and Row, 1986).
7. Terry M. Moe, "The Politicized Presidency" in John Chubb and Paul E. Peterson, eds., New Directions in American Politics (Washington, DC, Brookings Institution, 1985); Michael Sanera, "Implementing the Agenda" in Stuart M. Butler, Michael Sanera, and W. Bruce Weinrod, eds., Mandate for Leadership II (Washington, DC, Heritage Foundation, 1984); David A. Stockman, The Triumph of Politics (New York, Harper and Row, 1986).
8. See, Moe, "Politicized Presidency"; Stockman, Triumph of Politics; David Mathiasen, "The Evolution of the Office of Management and Budget under President Reagan," Public Budgeting and Finance 8 (Autumn 1988): 3-14; Peter M. Benda and Charles H. Levine, "Reagan and the Bureaucracy: The Bequest, the Promise and the Legacy" in Charles O. Jones, ed., The Reagan Legacy: Promises and Performance (Chatham, NJ, Chatham House, 1988); Bruce E. Johnson, "From Analyst to Negotiator: The OMB's New Role," Journal of Policy Analysis and Management 3 (Summer 1984): 501-515; Chester A. Newland, "Executive Office Policy Apparatus: Enforcing the Reagan Agenda" in Lester M. Salamon and Michael S. Lund, eds., The Reagan Presidency and the Governing of America (Washington, DC, Urban Institute, 1985); and Francis E. Rourke, "Executive Responsiveness to Presidential Policies: The Reagan Presidency," Congress and the Presidency 17 (Spring 1990): 1-11.
9. See, Moe, "Politicized Presidency"; Stockman, Triumph of Politics; David Mathiasen, "The Evolution of the Office of Management and Budget under President Reagan," Public Budgeting and Finance 8 (Autumn 1988): 3-14; Peter M. Benda and Charles H. Levine, "Reagan and the Bureaucracy: The Bequest, the Promise and the Legacy" in Charles O. Jones, ed., The Reagan Legacy: Promises and Performance (Chatham, NJ, Chatham House, 1988); Bruce E. Johnson, "From Analyst to Negotiator: The OMB's New Role," Journal of Policy Analysis and Management 3 (Summer 1984): 501-515; Chester A. Newland, "Executive Office Policy Apparatus: Enforcing the Reagan Agenda" in Lester M. Salamon and Michael S. Lund, eds., The Reagan Presidency and the Governing of America (Washington, DC, Urban Institute, 1985); and Francis E. Rourke, "Executive Responsiveness to Presidential Policies: The Reagan Presidency," Congress and the Presidency 17 (Spring 1990): 1-11.
10. See, Moe, "Politicized Presidency"; Stockman, Triumph of Politics; David Mathiasen, "The Evolution of the Office of Management and Budget under President Reagan," Public Budgeting and Finance 8 (Autumn 1988): 3-14; Peter M. Benda and Charles H. Levine, "Reagan and the Bureaucracy: The Bequest, the Promise and the Legacy" in Charles O. Jones, ed., The Reagan Legacy: Promises and Performance (Chatham, NJ, Chatham House, 1988); Bruce E. Johnson, "From Analyst to Negotiator: The OMB's New Role," Journal of Policy Analysis and Management 3 (Summer 1984): 501-515; Chester A. Newland, "Executive Office Policy Apparatus: Enforcing the Reagan Agenda" in Lester M. Salamon and Michael S. Lund, eds., The Reagan Presidency and the Governing of America (Washington, DC, Urban Institute, 1985); and Francis E. Rourke, "Executive Responsiveness to Presidential Policies: The Reagan Presidency," Congress and the Presidency 17 (Spring 1990): 1-11.
11. See, Moe, "Politicized Presidency"; Stockman, Triumph of Politics; David Mathiasen, "The Evolution of the Office of Management and Budget under President Reagan," Public Budgeting and Finance 8 (Autumn 1988): 3-14; Peter M. Benda and Charles H. Levine, "Reagan and the Bureaucracy: The Bequest, the Promise and the Legacy" in Charles O. Jones, ed., The Reagan Legacy: Promises and Performance (Chatham, NJ, Chatham House, 1988); Bruce E. Johnson, "From Analyst to Negotiator: The OMB's New Role," Journal of Policy Analysis and Management 3 (Summer 1984): 501-515; Chester A. Newland, "Executive Office Policy Apparatus: Enforcing the Reagan Agenda" in Lester M. Salamon and Michael S. Lund, eds., The Reagan Presidency and the Governing of America (Washington, DC, Urban Institute, 1985); and Francis E. Rourke, "Executive Responsiveness to Presidential Policies: The Reagan Presidency," Congress and the Presidency 17 (Spring 1990): 1-11.
12. See, Moe, "Politicized Presidency"; Stockman, Triumph of Politics; David Mathiasen, "The Evolution of the Office of Management and Budget under President Reagan," Public Budgeting and Finance 8 (Autumn 1988): 3-14; Peter M. Benda and Charles H. Levine, "Reagan and the Bureaucracy: The Bequest, the Promise and the Legacy" in Charles O. Jones, ed., The Reagan Legacy: Promises and Performance (Chatham, NJ, Chatham House, 1988); Bruce E. Johnson, "From Analyst to Negotiator: The OMB's New Role," Journal of Policy Analysis and Management 3 (Summer 1984): 501-515; Chester A. Newland, "Executive Office Policy Apparatus: Enforcing the Reagan Agenda" in Lester M. Salamon and Michael S. Lund, eds., The Reagan Presidency and the Governing of America (Washington, DC, Urban Institute, 1985); and Francis E. Rourke, "Executive Responsiveness to Presidential Policies: The Reagan Presidency," Congress and the Presidency 17 (Spring 1990): 1-11.
13. See, Moe, "Politicized Presidency"; Stockman, Triumph of Politics; David Mathiasen, "The Evolution of the Office of Management and Budget under President Reagan," Public Budgeting and Finance 8 (Autumn 1988): 3-14; Peter M. Benda and Charles H. Levine, "Reagan and the Bureaucracy: The Bequest, the Promise and the Legacy" in Charles O. Jones, ed., The Reagan Legacy: Promises and Performance (Chatham, NJ, Chatham House, 1988); Bruce E. Johnson, "From Analyst to Negotiator: The OMB's New Role," Journal of Policy Analysis and Management 3 (Summer 1984): 501-515; Chester A. Newland, "Executive Office Policy Apparatus: Enforcing the Reagan Agenda" in Lester M. Salamon and Michael S. Lund, eds., The Reagan Presidency and the Governing of America (Washington, DC, Urban Institute, 1985); and Francis E. Rourke, "Executive Responsiveness to Presidential Policies: The Reagan Presidency," Congress and the Presidency 17 (Spring 1990): 1-11.
14. See, Moe, "Politicized Presidency"; Stockman, Triumph of Politics; David Mathiasen, "The Evolution of the Office of Management and Budget under President Reagan," Public Budgeting and Finance 8 (Autumn 1988): 3-14; Peter M. Benda and Charles H. Levine, "Reagan and the Bureaucracy: The Bequest, the Promise and the Legacy" in Charles O. Jones, ed., The Reagan Legacy: Promises and Performance (Chatham, NJ, Chatham House, 1988); Bruce E. Johnson, "From Analyst to Negotiator: The OMB's New Role," Journal of Policy Analysis and Management 3 (Summer 1984): 501-515; Chester A. Newland, "Executive Office Policy Apparatus: Enforcing the Reagan Agenda" in Lester M. Salamon and Michael S. Lund, eds., The Reagan Presidency and the Governing of America (Washington, DC, Urban Institute, 1985); and Francis E. Rourke, "Executive Responsiveness to Presidential Policies: The Reagan Presidency," Congress and the Presidency 17 (Spring 1990): 1-11.
15. But see Patrick J. Wolf, "Neutral and Responsive Competence: The Bureau of the Budget, 193948, Revisited," Administration and Society 31 (March 1999): 142-167.
16. See, for example, Francis Rourke, "Responsiveness and Neutral Competence in American Bureaucracy," Public Administration Review 52 (November/December 1992): 539-546; John P. Burke, The Institutional Presidency (Baltimore, MD, Johns Hopkins University Press, 1992), 181-188; Walter Williams, Mismanaging America: The Rise of the Anti-Analytic Presidency (Lawrence, University Press of Kansas, 1990), 89-100.
17. See, for example, Francis Rourke, "Responsiveness and Neutral Competence in American Bureaucracy," Public Administration Review 52 (November/December 1992): 539-546; John P. Burke, The Institutional Presidency (Baltimore, MD, Johns Hopkins University Press, 1992), 181-188; Walter Williams, Mismanaging America: The Rise of the Anti-Analytic Presidency (Lawrence, University Press of Kansas, 1990), 89-100.
18. See, for example, Francis Rourke, "Responsiveness and Neutral Competence in American Bureaucracy," Public Administration Review 52 (November/December 1992): 539-546; John P. Burke, The Institutional Presidency (Baltimore, MD, Johns Hopkins University Press, 1992), 181-188; Walter Williams, Mismanaging America: The Rise of the Anti-Analytic Presidency (Lawrence, University Press of Kansas, 1990), 89-100.
19. Woodrow Wilson, "The Study of Administration," Political Science Quarterly 2 (June 1887): 197-222.
20. Herbert Kaufman, "Emerging Conflicts in the Doctrines of Public Administration," American Political Science Review 50 (December 1956): 1057-1073.
21. Pfiffner, "OMB: Professionalization," 208; Shelley Lynne Tomkin, Inside OMB (Armonk, NY, M.E. Sharpe, 1998), 54.
22. Pfiffner, "OMB: Professionalization," 208; Shelley Lynne Tomkin, Inside OMB (Armonk, NY, M.E. Sharpe, 1998), 54.
23. Larry Herman, The Office of Management and Budget and the Presidency, 1921-1979 (Princeton, NJ, Princeton University Press, 1979); William Carey, "Reorganization Plan No. 2," Public Administration Review 30 (November/December 1970): 631-634; Robert S. Gilmour, "Central Legislative Clearance: A Revised Perspective," Public Administration Review 31 (March/April 1971): 150-158; Hugh Heclo, "The Office of Management and Budget and the Presidency: The Problem of Neutral Competence," The Public Interest 38 (Winter 1975): 80-98; Allen Schick, "The Budget Bureau That Was: Thoughts on the Rise, Decline, and Future of a Presidential Agency," Law and Contemporary Problems 35 (Summer 1970): 519-539.
24. 10 Larry Herman, The Office of Management and Budget and the Presidency, 1921-1979 (Princeton, NJ, Princeton University Press, 1979); William Carey, "Reorganization Plan No. 2," Public Administration Review 30 (November/December 1970): 631-634; Robert S. Gilmour, "Central Legislative Clearance: A Revised Perspective," Public Administration Review 31 (March/April 1971): 150-158; Hugh Heclo, "The Office of Management and Budget and the Presidency: The Problem of Neutral Competence," The Public Interest 38 (Winter 1975): 80-98; Allen Schick, "The Budget Bureau That Was: Thoughts on the Rise, Decline, and Future of a Presidential Agency," Law and Contemporary Problems 35 (Summer 1970): 519-539.
25. 10 Larry Herman, The Office of Management and Budget and the Presidency, 1921-1979 (Princeton, NJ, Princeton University Press, 1979); William Carey, "Reorganization Plan No. 2," Public Administration Review 30 (November/December 1970): 631-634; Robert S. Gilmour, "Central Legislative Clearance: A Revised Perspective," Public Administration Review 31 (March/April 1971): 150-158; Hugh Heclo, "The Office of Management and Budget and the Presidency: The Problem of Neutral Competence," The Public Interest 38 (Winter 1975): 80-98; Allen Schick, "The Budget Bureau That Was: Thoughts on the Rise, Decline, and Future of a Presidential Agency," Law and Contemporary Problems 35 (Summer 1970): 519-539.
26. 10 Larry Herman, The Office of Management and Budget and the Presidency, 1921-1979 (Princeton, NJ, Princeton University Press, 1979); William Carey, "Reorganization Plan No. 2," Public Administration Review 30 (November/December 1970): 631-634; Robert S. Gilmour, "Central Legislative Clearance: A Revised Perspective," Public Administration Review 31 (March/April 1971): 150-158; Hugh Heclo, "The Office of Management and Budget and the Presidency: The Problem of Neutral Competence," The Public Interest 38 (Winter 1975): 80-98; Allen Schick, "The Budget Bureau That Was: Thoughts on the Rise, Decline, and Future of a Presidential Agency," Law and Contemporary Problems 35 (Summer 1970): 519-539.
27. 10 Larry Herman, The Office of Management and Budget and the Presidency, 1921-1979 (Princeton, NJ, Princeton University Press, 1979); William Carey, "Reorganization Plan No. 2," Public Administration Review 30 (November/December 1970): 631-634; Robert S. Gilmour, "Central Legislative Clearance: A Revised Perspective," Public Administration Review 31 (March/April 1971): 150-158; Hugh Heclo, "The Office of Management and Budget and the Presidency: The Problem of Neutral Competence," The Public Interest 38 (Winter 1975): 80-98; Allen Schick, "The Budget Bureau That Was: Thoughts on the Rise, Decline, and Future of a Presidential Agency," Law and Contemporary Problems 35 (Summer 1970): 519-539.
28. Heclo, "Office of Management and Budget," 81-82, 97.
29. On this point, see also Harold Seidman and Robert Gilmour, Politics, Position, and Power, 4th ed. (New York, Oxford University Press, 1986), 74-75.
30. Pfiffner, "OMB: Professionalization"; Williams, Mismanaging America; Tomkin, Inside OMB; John Hart, The Presidential Branch, 2nd ed. (Chatham, NJ, Chatham House, 1995), 80-86.
31. Pfiffner, "OMB: Professionalization"; Williams, Mismanaging America; Tomkin, Inside OMB; John Hart, The Presidential Branch, 2nd ed. (Chatham, NJ, Chatham House, 1995), 80-86.
32. Moe, "Politicized Presidency," 245. As John Hart summarizes: "[The] politicization of the institutional presidency ... runs counter to so many of the class textbook virtues of neutral competence. To a succession of presidents, however, these virtues are found only in textbooks." Hart, Presidential Branch, 216; see also Terry Eastland, Energy in the Executive (New York, Free Press, 1992); Richard Nathan, The Plot that Failed (New York, Wiley, 1975); Richard Nathan, The Administrative Presidency (New York, Wiley, 1983).
33. Moe, "Politicized Presidency," 245. As John Hart summarizes: "[The] politicization of the institutional presidency ... runs counter to so many of the class textbook virtues of neutral competence. To a succession of presidents, however, these virtues are found only in textbooks." Hart, Presidential Branch, 216; see also Terry Eastland, Energy in the Executive (New York, Free Press, 1992); Richard Nathan, The Plot that Failed (New York, Wiley, 1975); Richard Nathan, The Administrative Presidency (New York, Wiley, 1983).
34. Moe, "Politicized Presidency," 245. As John Hart summarizes: "[The] politicization of the institutional presidency ... runs counter to so many of the class textbook virtues of neutral competence. To a succession of presidents, however, these virtues are found only in textbooks." Hart, Presidential Branch, 216; see also Terry Eastland, Energy in the Executive (New York, Free Press, 1992); Richard Nathan, The Plot that Failed (New York, Wiley, 1975); Richard Nathan, The Administrative Presidency (New York, Wiley, 1983).
35. Moe, "Politicized Presidency," 245. As John Hart summarizes: "[The] politicization of the institutional presidency ... runs counter to so many of the class textbook virtues of neutral competence. To a succession of presidents, however, these virtues are found only in textbooks." Hart, Presidential Branch, 216; see also Terry Eastland, Energy in the Executive (New York, Free Press, 1992); Richard Nathan, The Plot that Failed (New York, Wiley, 1975); Richard Nathan, The Administrative Presidency (New York, Wiley, 1983).
36. Moe, "Politicized Presidency," 245. As John Hart summarizes: "[The] politicization of the institutional presidency ... runs counter to so many of the class textbook virtues of neutral competence. To a succession of presidents, however, these virtues are found only in textbooks." Hart, Presidential Branch, 216; see also Terry Eastland, Energy in the Executive (New York, Free Press, 1992); Richard Nathan, The Plot that Failed (New York, Wiley, 1975); Richard Nathan, The Administrative Presidency (New York, Wiley, 1983).
37. Moe, "Politicized Presidency," 249 and 246-249 generally.
38. Berman, Office of Management; Richard E. Neustadt, "Presidency and Legislation: The Growth of Central Clearance," American Political Science Review 48 (September 1954): 641-671; Richard E. Neustadt, "Presidency and Legislation: Planning the President's Program," American Political Science Review 49 (December 1955): 980-1021; 17 Andrew Rudalevige, Managing the President's Program: Presidential Leadership and Legislative Policy Formulation (Princeton, NJ, Princeton University Press, 2002); Stephen J. Wayne, The Legislative Presidency (New York, Harper and Row, 1978).
39. Berman, Office of Management; Richard E. Neustadt, "Presidency and Legislation: The Growth of Central Clearance," American Political Science Review 48 (September 1954): 641-671; Richard E. Neustadt, "Presidency and Legislation: Planning the President's Program," American Political Science Review 49 (December 1955): 980-1021; 17 Andrew Rudalevige, Managing the President's Program: Presidential Leadership and Legislative Policy Formulation (Princeton, NJ, Princeton University Press, 2002); Stephen J. Wayne, The Legislative Presidency (New York, Harper and Row, 1978).
40. Berman, Office of Management; Richard E. Neustadt, "Presidency and Legislation: The Growth of Central Clearance," American Political Science Review 48 (September 1954): 641-671; Richard E. Neustadt, "Presidency and Legislation: Planning the President's Program," American Political Science Review 49 (December 1955): 980-1021; 17 Andrew Rudalevige, Managing the President's Program: Presidential Leadership and Legislative Policy Formulation (Princeton, NJ, Princeton University Press, 2002); Stephen J. Wayne, The Legislative Presidency (New York, Harper and Row, 1978).
41. Berman, Office of Management; Richard E. Neustadt, "Presidency and Legislation: The Growth of Central Clearance," American Political Science Review 48 (September 1954): 641-671; Richard E. Neustadt, "Presidency and Legislation: Planning the President's Program," American Political Science Review 49 (December 1955): 980-1021; 17 Andrew Rudalevige, Managing the President's Program: Presidential Leadership and Legislative Policy Formulation (Princeton, NJ, Princeton University Press, 2002); Stephen J. Wayne, The Legislative Presidency (New York, Harper and Row, 1978).
42. Berman, Office of Management; Richard E. Neustadt, "Presidency and Legislation: The Growth of Central Clearance," American Political Science Review 48 (September 1954): 641-671; Richard E. Neustadt, "Presidency and Legislation: Planning the President's Program," American Political Science Review 49 (December 1955): 980-1021; 17 Andrew Rudalevige, Managing the President's Program: Presidential Leadership and Legislative Policy Formulation (Princeton, NJ, Princeton University Press, 2002); Stephen J. Wayne, The Legislative Presidency (New York, Harper and Row, 1978).
43. "This section draws heavily from Neustadt, "Planning the President's Program."
44. Quoted in Francis H. Heller, ed., The Truman White House: The Administration of the Presidency, 1945-1953 (Lawrence, Regents Press of Kansas, 1980), 90.
45. See the oral history of BoB staffer Roger Jones, Harry S. Truman Library (hereafter "HSTL"), Independence, Missouri, 89-90; the BoB "Staff Memorandum: Executive Branch Teamwork in the Critical Days Ahead" of 7 April 1948 proposes a division of labor among the BoB, CEA, National Securities Resource Board, and the National Security Council. Papers of James E. Webb, Box 5, folder entitled [BoB: Commission on the Organization of the Executive Branch of the Government], HSTL.
46. See the oral history of BoB staffer Roger Jones, Harry S. Truman Library (hereafter "HSTL"), Independence, Missouri, 89-90; the BoB "Staff Memorandum: Executive Branch Teamwork in the Critical Days Ahead" of 7 April 1948 proposes a division of labor among the BoB, CEA, National Securities Resource Board, and the National Security Council. Papers of James E. Webb, Box 5, folder entitled [BoB: Commission on the Organization of the Executive Branch of the Government], HSTL.
47. See Neustadt, "Planning the President's Program," 1008, for a detailed chronology; Staats to Director, 12 November 1948, "Some Immediate Issues in Relation to the President's Legislative Program for the Forthcoming Session," 4, in the Neustadt Papers, Box 10, [Addendum: Budget Policy and Legislative Program, 1948-49], HSTL; Neustadt to Charles Stauffacher, D. Bell, and J. Weldon Jones, "Departmental Reports to the President re State of the Union Message, Economic Report, and Legislative Program," 4 November 1948, in Neustadt Papers, Box 1, [Chron. Files, May-Dec. 1948], HSTL.
48. See Neustadt, "Planning the President's Program," 1008, for a detailed chronology; Staats to Director, 12 November 1948, "Some Immediate Issues in Relation to the President's Legislative Program for the Forthcoming Session," 4, in the Neustadt Papers, Box 10, [Addendum: Budget Policy and Legislative Program, 1948-49], HSTL; Neustadt to Charles Stauffacher, D. Bell, and J. Weldon Jones, "Departmental Reports to the President re State of the Union Message, Economic Report, and Legislative Program," 4 November 1948, in Neustadt Papers, Box 1, [Chron. Files, May-Dec. 1948], HSTL.
49. See Neustadt, "Planning the President's Program," 1008, for a detailed chronology; Staats to Director, 12 November 1948, "Some Immediate Issues in Relation to the President's Legislative Program for the Forthcoming Session," 4, in the Neustadt Papers, Box 10, [Addendum: Budget Policy and Legislative Program, 1948-49], HSTL; Neustadt to Charles Stauffacher, D. Bell, and J. Weldon Jones, "Departmental Reports to the President re State of the Union Message, Economic Report, and Legislative Program," 4 November 1948, in Neustadt Papers, Box 1, [Chron. Files, May-Dec. 1948], HSTL.
50. Staats to Stauffacher, Martin, and J.W. Jones, "Review of Legislative Proposals prior to Convening of 81st Congress," 6 December 1948, in Neustadt Papers, Box 11, [Addendum: Budget Policy and Legislative Program, 1948-49], HSTL. On LRD, see, for example, MacPhail and Neustadt to Roger W. Jones, "Bureau Procedure for Utilizing Agency Legislative Programs Submitted under Sec. 86, 'Call for Estimates,'" 6 September 1949, in Record Group [RG] 51, Legislative Reference Division Subject Files, 1939-70 (series 39.39) (hereafter "LRD Subject Files"), Box 4, [Legislative Program-81st Cong., 2nd sess.], National Archives II (hereafter "NA-II"), College Park, MD; R.W. Jones to J.W. Jones, McCandless, Rice, and Stauffacher, "Special Assignments for Review and Development of Legislative Proposals," 29 November 1949, in Papers of George Elsey, Box 80, [Legislation, 81st Cong., 2nd sess., general information, folder 2], HSTL.
51. Staats to Stauffacher, Martin, and J.W. Jones, "Review of Legislative Proposals prior to Convening of 81st Congress," 6 December 1948, in Neustadt Papers, Box 11, [Addendum: Budget Policy and Legislative Program, 1948-49], HSTL. On LRD, see, for example, MacPhail and Neustadt to Roger W. Jones, "Bureau Procedure for Utilizing Agency Legislative Programs Submitted under Sec. 86, 'Call for Estimates,'" 6 September 1949, in Record Group [RG] 51, Legislative Reference Division Subject Files, 1939-70 (series 39.39) (hereafter "LRD Subject Files"), Box 4, [Legislative Program-81st Cong., 2nd sess.], National Archives II (hereafter "NA-II"), College Park, MD; R.W. Jones to J.W. Jones, McCandless, Rice, and Stauffacher, "Special Assignments for Review and Development of Legislative Proposals," 29 November 1949, in Papers of George Elsey, Box 80, [Legislation, 81st Cong., 2nd sess., general information, folder 2], HSTL.
52. Staats to Stauffacher, Martin, and J.W. Jones, "Review of Legislative Proposals prior to Convening of 81st Congress," 6 December 1948, in Neustadt Papers, Box 11, [Addendum: Budget Policy and Legislative Program, 1948-49], HSTL. On LRD, see, for example, MacPhail and Neustadt to Roger W. Jones, "Bureau Procedure for Utilizing Agency Legislative Programs Submitted under Sec. 86, 'Call for Estimates,'" 6 September 1949, in Record Group [RG] 51, Legislative Reference Division Subject Files, 1939-70 (series 39.39) (hereafter "LRD Subject Files"), Box 4, [Legislative Program-81st Cong., 2nd sess.], National Archives II (hereafter "NA-II"), College Park, MD; R.W. Jones to J.W. Jones, McCandless, Rice, and Stauffacher, "Special Assignments for Review and Development of Legislative Proposals," 29 November 1949, in Papers of George Elsey, Box 80, [Legislation, 81st Cong., 2nd sess., general information, folder 2], HSTL.
53. In 1949, the examiners noted: "Recommend White House inform Secretary of Labor that labor extension was omitted from Administration program pending development of an acceptable bill-fiscally and administratively sound and on which AFL and CIO can give united support." In "Evaluation of Legislative Proposals," RG 51, LRD Subject Files, Box 4, [Evaluation of Legislative Program and Highlight Memos, 81st Cong., 2nd sess.], NA-II. For 1950, see "Reaction of Estimates Branches to Items of Unenacted Legislation," 23 October 1950, RG 51, LRD Subject Files, Box 4, [Legislative Program, 82nd Cong., 1st sess.], NA-II.
54. In 1949, the examiners noted: "Recommend White House inform Secretary of Labor that labor extension was omitted from Administration program pending development of an acceptable bill-fiscally and administratively sound and on which AFL and CIO can give united support." In "Evaluation of Legislative Proposals," RG 51, LRD Subject Files, Box 4, [Evaluation of Legislative Program and Highlight Memos, 81st Cong., 2nd sess.], NA-II. For 1950, see "Reaction of Estimates Branches to Items of Unenacted Legislation," 23 October 1950, RG 51, LRD Subject Files, Box 4, [Legislative Program, 82nd Cong., 1st sess.], NA-II.
55. See the memos on the 1952 campaign in the folder entitled [Legislative Program, 83rd Cong., 1st sess. (General)], LRD Subject Files, Box 5, NA-II, for example, that from L.C. Gibson to W.H. Snyder entitled "Analysis of Presidential Campaign, Chicago area," 25 September 1952. In San Francisco, the field office actually tried to measure the crowds for rival Eisenhower and Stevenson rallies.
56. See the memos on the 1952 campaign in the folder entitled [Legislative Program, 83rd Cong., 1st sess. (General)], LRD Subject Files, Box 5, NA-II, for example, that from L.C. Gibson to W.H. Snyder entitled "Analysis of Presidential Campaign, Chicago area," 25 September 1952. In San Francisco, the field office actually tried to measure the crowds for rival Eisenhower and Stevenson rallies.
57. "6/5/50 Notes on Division Chiefs Meeting," Lawton Papers, Box 3, [BoB-Staff Meetings], HSTL, 1-2.
58. L.C. Gibson to Mr. Garber, "Comments on Tentative List of Legislative Items for 81st Congress," 16 September 1948, in RG 51, LRD Subject Files, 1939-70, Box 3, [Legislative Program, 81st Cong., 1st sess.], NA-II.
59. MacPhail and Neustadt to Jones, "Bureau Procedure For Utilizing Agency Legislative Programs."
60. See Neustadt to Staats, memo of 20 February 1948, "Special Report on Status of Selected Items in the President's Legislative Program," Webb Papers, Box 18, [BoB: Leg. Status Reports, 80th Cong., 2nd sess. (folder 1)], HSTL, and Neustadt to Staats, memo of 23 November 1948, "Legislative Progress Reporting for the President," Neustadt Papers, Box 1, [Chron. Files, May-Dec. 1948], HSTL.
61. See Neustadt to Staats, memo of 20 February 1948, "Special Report on Status of Selected Items in the President's Legislative Program," Webb Papers, Box 18, [BoB: Leg. Status Reports, 80th Cong., 2nd sess. (folder 1)], HSTL, and Neustadt to Staats, memo of 23 November 1948, "Legislative Progress Reporting for the President," Neustadt Papers, Box 1, [Chron. Files, May-Dec. 1948], HSTL.
62. "1/27/50 Staff Meeting Items Check List," Lawton Papers, Box 3, [BoB-Staff Meetings], HSTL; Neustadt to Jones, "Weekly Reports on Anticipated Congressional Schedules," 15 May 1950, in RG 51, LRD Subject Files, 1939-70, Box 4, [Legislative Program, 82nd Cong., 1st sess.], NA-II.
63. "1/27/50 Staff Meeting Items Check List," Lawton Papers, Box 3, [BoB-Staff Meetings], HSTL; Neustadt to Jones, "Weekly Reports on Anticipated Congressional Schedules," 15 May 1950, in RG 51, LRD Subject Files, 1939-70, Box 4, [Legislative Program, 82nd Cong., 1st sess.], NA-II.
64. Heller, Truman White House, 227.
65. Murphy to Rep. John McCormack, 9 January 1950, Neustadt Papers, Box 1, [Chron. Files, Oct. 1949-May 1950], HSTL.
66. The Legislative Reference Division became the Office of Legislative Reference in 1952, then became a division again in a later reorganization. Edward H. Hobbs, Behind the President: A Study of Executive Office Agencies (Washington, DC, Public Affairs Press, 1954), 59; see also Edward S. Flash, Jr., Economic Advice and Presidential Leadership (New York, Columbia University Press, 1965), 44-45.
67. The Legislative Reference Division became the Office of Legislative Reference in 1952, then became a division again in a later reorganization. Edward H. Hobbs, Behind the President: A Study of Executive Office Agencies (Washington, DC, Public Affairs Press, 1954), 59; see also Edward S. Flash, Jr., Economic Advice and Presidential Leadership (New York, Columbia University Press, 1965), 44-45.
68. Neustadt to Staats, "The Workload of the Director and Acting Assistant Director," no date (1947), in RG 51, Entry 9B, Records Related to the Administrative Management of the Bureau of the Budget, 1939-52, Box 4, [B2-5 Office of the Director], NA-II. In 1948, Neustadt called his move from the Director's Office at BoB to the LRD "part of a relatively planned program for expanding the operation, particularly in its White House and agency relationships." Neustadt to Payson Wild, 5 May 1948, Neustadt Papers, Box 1, [Chron. Files: May-Dec. 1948], HSTL.
69. Neustadt to Staats, "The Workload of the Director and Acting Assistant Director," no date (1947), in RG 51, Entry 9B, Records Related to the Administrative Management of the Bureau of the Budget, 1939-52, Box 4, [B2-5 Office of the Director], NA-II. In 1948, Neustadt called his move from the Director's Office at BoB to the LRD "part of a relatively planned program for expanding the operation, particularly in its White House and agency relationships." Neustadt to Payson Wild, 5 May 1948, Neustadt Papers, Box 1, [Chron. Files: May-Dec. 1948], HSTL.
70. David Bell oral history, HSTL, 3-4. See also Clark Clifford's warm letters of 8 January 1947 to "My dear Jim" Webb thanking him for the use of Budget staffers. Webb Papers, Box 8, [BoB: Clark Clifford], HSTL.
71. David Bell oral history, HSTL, 3-4. See also Clark Clifford's warm letters of 8 January 1947 to "My dear Jim" Webb thanking him for the use of Budget staffers. Webb Papers, Box 8, [BoB: Clark Clifford], HSTL.
72. Harold Seidman oral history, HSTL, 10-11, 47-48, 58, and 56-63 in general.
73. Staats comments in "Excerpts from Staff Meeting Minutes: Bureau's Relationship with Congress," 29 September 1948 and 7 October 1948, Lawton Papers, Box 3, [BoB-Staff Meetings], HSTL. Privately, Staats went so far as to suggest the Bureau try to place candidates on Congressional committee staffs, although he cautioned that "the initiative will have to, at least, have the appearance of coming from Congress." Staats to Director, "Some Immediate Issues in Relation to the President's Legislative Program for the Forthcoming Session," 12 November 1948, Neustadt Papers, Box 10, [Addendum: Budget Policy and Legislative Program, 1948-49], HSTL.
74. Staats comments in "Excerpts from Staff Meeting Minutes: Bureau's Relationship with Congress," 29 September 1948 and 7 October 1948, Lawton Papers, Box 3, [BoB-Staff Meetings], HSTL. Privately, Staats went so far as to suggest the Bureau try to place candidates on Congressional committee staffs, although he cautioned that "the initiative will have to, at least, have the appearance of coming from Congress." Staats to Director, "Some Immediate Issues in Relation to the President's Legislative Program for the Forthcoming Session," 12 November 1948, Neustadt Papers, Box 10, [Addendum: Budget Policy and Legislative Program, 1948-49], HSTL.
75. Lawton comments in "Excerpts from Staff Meeting Minutes: Bureau's Relationship with Congress," 29 September 1948 and 7 October 1948.
76. James Sundquist oral history, HSTL, 9-14.
77. See Webb's notes from 7 November 1946, Webb Papers, Box 3, [BoB: Conference Notes (private)], HSTL. Vinson had been the secretary, and Gardner the undersecretary, when Webb worked in the Treasury Department. For Rowe, see Rowe to Budget Director, "Testimony on 'Unification,' " undated. Webb files, Box 7, [BoB: Consultant James H. Rowe, Jan. 1947-Aug. 1948], HSTL. Webb claimed that the famous strategy memo regarding the 1948 election-see David McCullough, Truman (New York, Simon and Schuster, 1992), 590-592-originated from Rowe at Webb's instigation (Truman White House oral history, HSTL, 57f). Commentary from other people without access to Truman but whose political advice Webb respected-from Vannevar Bush to Louis Brownlow-also went through Webb to Clifford or other White House aides.
78. See Webb's notes from 7 November 1946, Webb Papers, Box 3, [BoB: Conference Notes (private)], HSTL. Vinson had been the secretary, and Gardner the undersecretary, when Webb worked in the Treasury Department. For Rowe, see Rowe to Budget Director, "Testimony on 'Unification,' " undated. Webb files, Box 7, [BoB: Consultant James H. Rowe, Jan. 1947-Aug. 1948], HSTL. Webb claimed that the famous strategy memo regarding the 1948 election-see David McCullough, Truman (New York, Simon and Schuster, 1992), 590-592-originated from Rowe at Webb's instigation (Truman White House oral history, HSTL, 57f). Commentary from other people without access to Truman but whose political advice Webb respected-from Vannevar Bush to Louis Brownlow-also went through Webb to Clifford or other White House aides.
79. See Webb's notes from 7 November 1946, Webb Papers, Box 3, [BoB: Conference Notes (private)], HSTL. Vinson had been the secretary, and Gardner the undersecretary, when Webb worked in the Treasury Department. For Rowe, see Rowe to Budget Director, "Testimony on 'Unification,' " undated. Webb files, Box 7, [BoB: Consultant James H. Rowe, Jan. 1947-Aug. 1948], HSTL. Webb claimed that the famous strategy memo regarding the 1948 election-see David McCullough, Truman (New York, Simon and Schuster, 1992), 590-592-originated from Rowe at Webb's instigation (Truman White House oral history, HSTL, 57f). Commentary from other people without access to Truman but whose political advice Webb respected-from Vannevar Bush to Louis Brownlow-also went through Webb to Clifford or other White House aides.
80. R.R. Zimmerman to Webb, no title, 12 September 1946. Webb Papers, Box 15, [BoB: Federal Budget 1948 (Folder 2 of 2)], HSTL.
81. F.J. Lawton to Director, "Meeting of the President with Agency Heads," memo of 17 September 1946. Webb Papers, Box 15, [BoB: Federal Budget 1948 (Folder 2 of 2)], HSTL.
82. Webb to Clifford, memo of 24 December 1946, no title, Clifford Files, Box 2, [Budget, Bureau of the], HSTL.
83. See "4/7/49 Staff Meeting Items Check List" and "4/19/49 Staff Meeting Items Check List," both in the Lawton Papers, Box 3, [BoB-Staff Meetings], HSTL. By January 1950, Pace reported "President greatly pleased.... President's reliance on the Bureau constantly increasing."
84. John B. Blandford, Jr., to Director, 22 September 1947, "Preliminary Suggestions on Housing"; Blandford to Director, 25 September 1947, "Housing." Both in Webb Papers, Box 17, [BoB: Housing], HSTL.
85. J. Weldon Jones to Director, memo of 28 June 1948, "Outline for the Review of the 1949 Budget," Webb Papers, Box 16, [BoB: Federal Budget 1949 (folder 2 of 2)], HSTL.
86. Truman White House oral history, HSTL, 56, 59.
87. U.S. Civil Service Commission Position Description, 29 November 1948, provided by Richard Neustadt from his personal papers.
88. Truman White House oral history, HSTL, 23-25; Murphy oral history of 3 June 1963, HSTL. The list includes at least Andrews, Bell, Harold Enarson, Ken Hechler, Milton Kayle, Neustadt, Stowe, and Sundquist. Hechler notes in his memoirs that Webb "appreciated that one of the best ways to gain support was to furnish able assistance" and "offer[ed] to detach any of his staff to help the White House whenever needed." Ken Hechler, Working with Truman (Columbia, University of Missouri Press, 1996), 160.
89. Truman White House oral history, HSTL, 23-25; Murphy oral history of 3 June 1963, HSTL. The list includes at least Andrews, Bell, Harold Enarson, Ken Hechler, Milton Kayle, Neustadt, Stowe, and Sundquist. Hechler notes in his memoirs that Webb "appreciated that one of the best ways to gain support was to furnish able assistance" and "offer[ed] to detach any of his staff to help the White House whenever needed." Ken Hechler, Working with Truman (Columbia, University of Missouri Press, 1996), 160.
90. Truman White House oral history, HSTL, 23-25; Murphy oral history of 3 June 1963, HSTL. The list includes at least Andrews, Bell, Harold Enarson, Ken Hechler, Milton Kayle, Neustadt, Stowe, and Sundquist. Hechler notes in his memoirs that Webb "appreciated that one of the best ways to gain support was to furnish able assistance" and "offer[ed] to detach any of his staff to help the White House whenever needed." Ken Hechler, Working with Truman (Columbia, University of Missouri Press, 1996), 160.
91. Roger Jones oral history, HSTL, 17.
92. Truman White House oral history, HSTL, 3.
93. U.S. Civil Service, Position Description, 4.
94. Roger Jones oral history, HSTL, 87.
95. Ibid., 72.
96. Ibid., 67; see also Seidman oral history, HSTL, 30, 39-40.
97. Ibid., 67; see also Seidman oral history, HSTL, 30, 39-40.
98. Smith to Truman, "Organization of a Department of Common Defense," memo of 24 May 1945. President's Secretary's Files, Box 150, [Bureau of the Budget-Military, 1945-53], HSTL.
99. Webb to Clifford, no title, Webb Papers, Box 8, [BoB: Clark Clifford], HSTL.
100. See, for example, L.C. Martin to Director, "Budget Bureau Services to the President," 31 July 1945, RG 51, Entry 9B, Records Related to the Administrative Management of the BoB, 1939-52, Box 2, [Bl-9 Relations with Other Units of the EOF], NA-II.
101. Reported in Neustadt to Spingarn, "Miscellany on Executive Office Relationships," memo of 12 June 1950. Neustadt Papers, Box 1, [Chron. File, June 1950], HSTL.
102. Neustadt to Staats, "The Administration Legislative Program and the Budget," memo of 22 November 1948. Neustadt Papers, Box 1, [Chron, Files, May-Dec. 1948], HSTL.
103. Heclo, "Office of Management and Budget," 88.
104. Webb, "Notes to File," 15 August 1946, in Webb Papers, Box 3, [BoB: Conference Notes (personal), Oct. 1946-Jan. 1948], HSTL. On Truman and decisions, see Alonzo L. Hamby, Man of the People (New York, Oxford University Press, 1995), 313; Richard E. Neustadt, Presidential Power and the Modern Presidents (New York, Free Press, 1990), 144ff.
105. Webb, "Notes to File," 15 August 1946, in Webb Papers, Box 3, [BoB: Conference Notes (personal), Oct. 1946-Jan. 1948], HSTL. On Truman and decisions, see Alonzo L. Hamby, Man of the People (New York, Oxford University Press, 1995), 313; Richard E. Neustadt, Presidential Power and the Modern Presidents (New York, Free Press, 1990), 144ff.
106. Webb, "Notes to File," 15 August 1946, in Webb Papers, Box 3, [BoB: Conference Notes (personal), Oct. 1946-Jan. 1948], HSTL. On Truman and decisions, see Alonzo L. Hamby, Man of the People (New York, Oxford University Press, 1995), 313; Richard E. Neustadt, Presidential Power and the Modern Presidents (New York, Free Press, 1990), 144ff.
107. Robert E. Merriam, "The Bureau of the Budget As Part of the President's Staff," Annals of the American Academy of Political and Social Science 307 (September 1956): 22. Tomkin relays remarkably similar functions for career personnel in the 1970s: "[OMB] analysis was described as projecting the potential effect of congressional and interest group reaction, the electoral reactions of key congressional members' constituencies, and the character of particular agency-congressional relationships on a proposal's chance for legislative enactment," including congressional head counts. Tomkin, Inside OMB, 65.
108. Robert E. Merriam, "The Bureau of the Budget As Part of the President's Staff," Annals of the American Academy of Political and Social Science 307 (September 1956): 22. Tomkin relays remarkably similar functions for career personnel in the 1970s: "[OMB] analysis was described as projecting the potential effect of congressional and interest group reaction, the electoral reactions of key congressional members' constituencies, and the character of particular agency-congressional relationships on a proposal's chance for legislative enactment," including congressional head counts. Tomkin, Inside OMB, 65.
109. Neustadt, "Proposed Memorandum on the Legislative Clearance Functions of the Bureau of the Budget," draft report of 7 July 1948, 5b-6b. Neustadt Papers, Box 10, [Subject Files, Addendum: Budget Policy and Legislative Program, 1948-49], HSTL.
110. Staats to Director, "Organization and Management of the Bureau of the Budget," memo of 25 September 1947, 5-6. Lawton Papers, Box 3, [BoB: Organization, etc.], HSTL.
111. Graham Wilson terms this a "higher form" of policy competence, linking substantive information on policy options to the likely outcome of each option and its prospective appeal to various relevant actors; his argument is described in Daniel E. Ponder, Good Advice: Information and Policy Making in the White House (College Station, Texas A&M Press, 2000), 23-25; Graham K. Wilson, "The Challenge to Neutral Competence: A Preface to a Panel," paper presented at the annual meeting of the American Political Science Association, Washington, DC, 1993.
112. Graham Wilson terms this a "higher form" of policy competence, linking substantive information on policy options to the likely outcome of each option and its prospective appeal to various relevant actors; his argument is described in Daniel E. Ponder, Good Advice: Information and Policy Making in the White House (College Station, Texas A&M Press, 2000), 23-25; Graham K. Wilson, "The Challenge to Neutral Competence: A Preface to a Panel," paper presented at the annual meeting of the American Political Science Association, Washington, DC, 1993.
113. For similar arguments, see Rourke, "Responsiveness and Neutral Competence" and Wyszomirski, "De-Institutionalization of Presidential Staff Agencies."
114. For similar arguments, see Rourke, "Responsiveness and Neutral Competence" and Wyszomirski, "De-Institutionalization of Presidential Staff Agencies."
115. For survey data on bureaucratic attitudes, see Joel Aberbach and Bert A. Rockman, In the Web of Politics: Three Decades of the Federal Executive (Washington, DC, Brookings Institution, 2000). On public attitudes toward government, see Joseph S. Nye, Jr., Philip D. Zelikow, and David C. King, eds., Why People Don't Trust Government (Cambridge, MA, Harvard University Press, 1997), 79-84.
116. For survey data on bureaucratic attitudes, see Joel Aberbach and Bert A. Rockman, In the Web of Politics: Three Decades of the Federal Executive (Washington, DC, Brookings Institution, 2000). On public attitudes toward government, see Joseph S. Nye, Jr., Philip D. Zelikow, and David C. King, eds., Why People Don't Trust Government (Cambridge, MA, Harvard University Press, 1997), 79-84.
117. Matthew J. Dickinson, Bitter Harvest; FDR, Presidential Power, and the Growth of the Presidential Branch (New York, Cambridge University Press, 1997); Ponder, Good Advice; Rudalevige, Managing the President's Program.
118. Matthew J. Dickinson, Bitter Harvest; FDR, Presidential Power, and the Growth of the Presidential Branch (New York, Cambridge University Press, 1997); Ponder, Good Advice; Rudalevige, Managing the President's Program.
119. Matthew J. Dickinson, Bitter Harvest; FDR, Presidential Power, and the Growth of the Presidential Branch (New York, Cambridge University Press, 1997); Ponder, Good Advice; Rudalevige, Managing the President's Program.