Chapter Seventeen: The Bureaucracy of Homeland Security

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Chapter SeventeenThe Bureaucracy of
Homeland Security
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Bureaucracy The Weberian Ideal
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Bureaucracy The Weberian Ideal

• Max Weber
• Max Weber coined the term bureaucracy to describe
  professional, rational organizations
• People organize for a purpose and their
  organizations should accomplish that purpose
• The process is rational There is a problem,
  people organize to solve it, they work together,
  and the problem is solved
• Bureaucracy should be designed to accomplish
  specific purposes

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Bureaucracy The Weberian Ideal

• The ideal bureaucracy
• In Webers ideal, labor is to be divided into
  specific functions or bureaus, and all the
  bureaus or functions of the organization are to
  assemble logically to produce the whole
• Modern bureaucratic management ideally comes from
  leaders who excel at leadership
• Every aspect of the organization centers on
  rational efficiency

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Bureaucracy The Weberian Ideal

• Views concerning the expanded homeland security
  bureaucracy
• Supporters of one position maintain that
  consolidating power is efficient. They argue that
  a large bureaucracy with a clear mission will
  empower the security forces to perform their
  mission
• Proponents of a second position suggest that
  decentralizing power personalizes services and
  helps develop links to communities. They believe
  localized, informal offices are more adept at
  recognizing and handling problems

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The Role of Law Enforcement and Intelligence
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The Role of Law Enforcement and Intelligence

• The lead agency for counterterrorism FBI
• Under Director Robert Mueller the FBIs charge is
  to prevent terrorism
• The FBI is to coordinate intelligence gathering
  and sharing activities with the Border Patrol,
  Secret Service, and CIA
• The FBI is to operate as partners with state and
  local law enforcement.
• Finally, since the FBI is in the Department of
  Justice, it is to coordinate activities with DHS
  and the Department of Defense

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The Role of Law Enforcement and Intelligence

• A new role for the CIA
• Originally, the CIA was supposed to be the agency
  that would coordinate al U.S. intelligence data
• The CIA was to operate apart from U.S. criminal
  law
• Today, the CIA is to cooperate fully with the FBI
  on counterterrorism intelligence

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The Role of Law Enforcement and Intelligence

• The Department of Homeland Security
• DHS is also charged with counterterrorism
• DHS includes law enforcement agencies, such as
  the Secret Service, the Border Patrol, the new
  Immigration and Customs Enforcement, the U.S.
  Customs Service, and other agencies
• It has its own military, and its own intelligence
  section

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The Role of Law Enforcement and Intelligence

• Department of Defense
• The DOD augments civilian defense, provides
  special operation capabilities, and interdicts
  terrorists before they arrive in the United
  States
• The main military role in counterterrorism is to
  project American power overseas

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The Role of Law Enforcement and Intelligence

• The array of American power
• In theory, led by the FBI and the CIA, multiple
  agencies will work together to gain information,
  analyze it together, and share the results with
  every bureaucracy concerned with homeland
  security
• The FBI and the CIA are to create a cooperative,
  sharing atmosphere with thousands of state and
  local law enforcement agencies
• DHS calls on the entire system of homeland
  security bureaucracies to form relations with
  local communities and private industry

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Protecting the Borders
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Protecting the Borders

• Agencies protecting the American borders
• The Secret Service
• The Coast Guard
• Customs and Border Protection
• Immigration and Customs Enforcement
• The Federal Law Enforcement Training Center
• The Office of Domestic Preparedness
• The Transportation Security Administration

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Protecting the Borders

• Areas of vulnerability on the American borders
• Long stretches of unprotected areas along the
  northern and southern borders are open to
  infiltration
• More than three hundred seaports must be secured
• The DHS has agencies responsible for securing
  entry into the United States at airports, and it
  is responsible for protecting air travel once the
  entry points are protected
• Border agents are responsible for staffing entry
  points along the northern and southern borders
• Another DHS agency has the task of accounting for
  noncitizens within U.S. Borders

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Protecting the Borders

• DHS protecting the borders
• DHS cooperates with the FBI and CIA
• DHS has increased the number of people who patrol
  the border
• DHS uses technology, such as biometric
  measuring-- that is, identification systems based
  on body characteristics such as finger prints,
  facial patterns, or DNA

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Protecting the Borders

• Criticisms of DHS activities
• Activities may not be effective
• Some DHS policies have not been popular with
  other countries
• Many local governments feel they need the tryst
  and cooperation of foreigners living in their
  areas

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Protecting the Borders

• 9-11 Commission Reports recommendations for
  border security
• A single agency should screen crossings with a
  single format
• An investigative agency should be established to
  monitor aliens in the United States
• The DHS should gather intelligence on the way
  terrorists travel, and combine intelligence and
  law enforcement activities to hamper their
  mobility
• There should be a standardize method for
  obtaining identification and wanted passports
  using biometric measures

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Infrastructure Protection
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Infrastructure Protection

• Identification and protection of critical
  infrastructures
• DHS states that law enforcement agencies will
  need to develop cooperative links with public and
  private bureaucracies, including private security
  organizations, educational institutions, and
  health care systems

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Infrastructure Protection

• Criticisms
• Too little is being done
• A year after September 11, the federal government
  had failed to release resources to state and
  local governments
• Federal law enforcement does little to assist
  private security

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Infrastructure Protection

• Richard Clarkes threats facing the nation of
  infrastructures
• Most computer systems are vulnerable to viruses
• The nations power system and technological
  organizations that support it are vulnerable to
  disruptions
• The Internet and computer networks that support
  these systems are vulnerable to attack

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Infrastructure Protection

• Protection of the infrastructure
• According to Clarke, the state and local law
  enforcement should not play the leading role in
  infrastructure protection
• Protection of the infrastructure comes when
  specialists in crime fighting and protection
  establish critical links with the public and
  private organizations serving Americas
  infrastructure
• The police should be linked to security forces
  already associated with infrastructure functions
• State and local law enforcement agencies must
  establish formal and informal networks with the
  organizations in their jurisdictions, and these
  networks should expand to a cooperative federal
  system

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DHS, Security, and Police Work
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DHS, Security, and Police Work

• Local law enforcement agencies
• The IACP believes that local law enforcement
  agencies will become the hinge on which all local
  efforts pivot
• Homeland security entails coordinating efforts
  from several local organizations, including
  private industry, public service, health care
  systems, and law enforcement
• As local agencies become involved in homeland
  security, they must become involved in assessing
  threats in their jurisdictions. They must also
  learn to recognize possible items that may add to
  national defense intelligence and develop
  routines to forward such information

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DHS, Security, and Police Work

• Police and gathering defense intelligence
• The process of gathering defense intelligence is
  not readily apparent in American policing
• Police work is political, and law enforcement
  officers think locally

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DHS, Security, and Police Work

• Abstract reasoning skills
• State and local officers are not rewarded for
  thinking in terms of international issues or
  national security
• Chiefs and sheriffs do not usually praise
  abstract reasoning, and higher education has done
  little to help this situation
• Criminal justice programs do not produce
  abstract, critical thinkers for law enforcement
• To combat terrorism, security forces require
  groups of people with abstract reasoning skills,
  knowledge of international politics and history,
  and specialized expertise in particular regions.
  However, the ethos behind policing rejects this
  logic

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Possible Approaches for Homeland Security
Bureaucracies
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Possible Approaches for Homeland Security
Bureaucracies

• Legal alternatives to police participation in
  homeland defense
• Gathering security information in the course of
  criminal investigations
• Combine training in alertness with specialized
  training for selected officers

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Possible Approaches for Homeland Security
Bureaucracies

• The FBIs Joint Terrorism Task Force (JTTF)
• The JTTF combines local, state, and various
  federal police officers, as well as corrections
  officials and prosecutors, in regional units
  designed to combat terrorism

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Possible Approaches for Homeland Security
Bureaucracies

• Opposition to the JTTF
• Local governments have refused to allow their
  police forces to assist in counterterrorist
  activities
• Civil libertarians see the formation of a JTTF as
  too great of a consolidation of government power
• State and federal courts may well limit the role
  of local agencies in homeland security

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Possible Approaches for Homeland Security
Bureaucracies

• Other democracies who have had their police
  engage in intelligence gathering activities and
  have expanded their role in national defense
• France
• Germany
• Canada
• The British

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Bureaucratic Inhibitors
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Bureaucratic Inhibitors

• Public service organizations have foibles that
  emerge in the everyday social construction of
  reality
• The FBI versus Police and Sheriffs Departments
• Many state and local police executives do not
  trust the FBI, and the attitude extends down
  through the ranks of law enforcement agencies
• The relationship between the FBI and state and
  local law enforcement must improve

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Bureaucratic Inhibitors

• Federal Law Enforcement Rivalries
• Organizations on every level frequently act out
  of self-interest rather than concern with an
  overall mission
• Advocates of Local Control
• Some people feel cooperation between state and
  local law enforcement will result in the de fact
  concentration of police power

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Bureaucratic Inhibitors

• The Problem of Legal Bureaucracy
• The criminal justice system is actually not a
  system at all, but a multifaceted bureaucracy
  with intersecting layers
• While police and correctional institutions
  represent the executive branch of the government,
  the courts autonomously belong to the judicial
  branch

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Bureaucratic Inhibitors

• The Bureaucracy Problem
• Change can happen, and may even be welcome, if
  federal agencies enter into cooperative
  relationships with their local counterparts
• Large organizations are difficult to manage, and
  problems increase rapidly when organizational
  effectiveness requires cooperation on several
  levels
• If the DHS can create effective partnerships with
  intelligence and law enforcement agencies on the
  federal level, it could focus attention on these
  issues. However, homeland security becomes a
  problem much larger than gathering and analyzing
  information
• The problem appears in preventing terrorism, and
  preventing requires bureaucratic change

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Stephen Flynns Critique of the Ideal
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Stephen Flynns Critique of the Ideal

• Two mistakes made by the United States
• Homeland security has been separated from
  national security
• The infrastructure is vulnerable to attack
• Homeland security should be part of a national
  strategy to defend the United States

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Stephen Flynns Critique of the Ideal

• Weapons of mass destruction
• According to the CIA, the most likely scenario
  for smuggling weapons of mass destruction into
  the United States is by sea
• The Bush administration has done very little to
  protect the nations 361 seaports

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Stephen Flynns Critique of the Ideal

• The nations infrastructure
• In the 2005 military budget, the infrastructure
  for the entire nation will receive only 2.6
  billion, whereas the DOD was allotted 7.6
  billion
• Flynn sees a problem in strategic thinking in DHS
  and other agencies
• Increased border protection will not protect
  America against terrorist attacks

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Stephen Flynns Critique of the Ideal

• Jihadists are aware of the vulnerabilities in the
  infrastructure
• The safest and most effective way to hit America
  is to strike the infrastructure
• Reinvent homeland security
• DHS and other federal bureaucracies should think
  of security from a broad perspective

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Stephen Flynns Critique of the Ideal

• Flynns recommendations for the future
• The best current model for homeland security is
  the air industry
• When bureaucracies recover from failure, people
  will believe in their own safety and continue to
  function
• Americans must be able to absorb a major attack
  and continue to function