White House Evolution and Institutionalization: The Office of Chief of Staff since Reagan
White House Evolution and Institutionalization: The Office of Chief of Staff since Reagan
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白宫的演变和制度化：里根以来的办公厅主任办公室
DOI：
10.1111/psq.12249
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发表时间：
2016
影响因子：
0.8
通讯作者：
C. Walcott
中科院分区：
文献类型：
--
作者：
D. Cohen;Karen M. Hult;C. Walcott
白宫办公厅主任是谢尔曼亚当斯在德怀特艾森豪威尔时期开创的一个职位，1978年吉米·卡特正式任命汉密尔顿·乔丹为白宫办公厅主任，这一职位成为总统职位的永久固定职位。自1953年出现以来，该职位经历了稳步发展，对其业绩的预期大多稳定下来。与此同时，这项工作继续适应总统和总统任期的独特需求以及美国治理的动态。基于一个更大的项目，试图描述和分析白宫办公厅主任办公室在现代美国总统（科恩，霍特和沃尔科特即将出版）的过程中，我们在这里探讨如何以及为什么单位已经演变，并追溯其重要性，当代总统的行为。与此同时，我们专注于从事这项工作的个人。虽然办公室显然是机构总统的中心，总统以特定的方式塑造它，但成为办公室主任的人会把自己的才能、兴趣和局限性带到这个职位上。酋长们在性情、与总统的关系以及他们任职的环境方面都有很大的不同。我们的部分任务是梳理出谁碰巧是参谋长是否、如何以及为什么重要。在这样做的时候，我们采取了雅各布斯和金（2010，793）所谓的“结构化代理方法”，将参谋长置于“现有的......组织战斗、制度和政策的结构。“我们开始先简要说明分析的证据基础，然后是职位和职位的演变。然后我们研究参谋长的角色和活动，突出那些从罗纳德里根到巴拉克奥巴马担任总统的人。虽然篇幅有限，我们不得不在结论和插图中加以说明，但它们来自广泛的研究（作者和其他人）和众多的数据来源。(1)许多人反映了过去的参谋长和其他白宫助手的观察（在采访作者，米勒中心的学者，以及从白宫过渡项目）。其他信息来自总统文件、政府文件、回忆录和媒体报道。办公厅主任职位和办公室的演变白宫配备多名专业人员的出现与大多数学者对现代总统出现的理解大致吻合。19世纪和20世纪初的总统们沿着只有一名受薪的专业工作人员，直到1929年赫伯特·胡佛（Herbert Hoover）引入了一个四人的高级工作人员（Walcott and Hult，1995）。(2)富兰克林罗斯福（罗斯福）也有类似的工作人员，直到20世纪30年代末国会授权增加几名“行政助理”。总统可以非正式地管理这么小的工作人员（包括引座员、园丁和信使，人数从来不超过50人），罗斯福尤其擅长这项任务。(3)直到第二次世界大战，白宫办公室的规模才有了显著的增长，当时它是匆忙成立的负责管理战争和经济的单位的支点。战争结束后，这些位于战争动员和重建办公室的残余物在杜鲁门总统助手约翰·斯蒂尔曼的指导下被装进了白宫。虽然斯蒂尔曼的任务主要涉及行政管理，但他并不是一个完全的参谋长：他从来没有权力领导政策工作人员，首先由克拉克克利福德，然后由查尔斯墨菲。尽管白宫已经有了很大的发展，但总统仍然指挥着它的运作。办公室主任职位：从党派学习到稳定的期望德怀特艾森豪威尔，以他的军事背景和对组织和人员配备的相关重视，发起了行政管理的变革，最终奠定了当代白宫工作人员的基础。…
The White House chief of staff, a job that Sherman Adams pioneered under Dwight Eisenhower, became a permanent fixture of the institutional presidency when Jimmy Carter formalized Hamilton Jordan's position in 1978. Since its emergence in 1953, the position has undergone steady evolution, and expectations about its performance mostly have stabilized. At the same time, the job continues to adapt to the distinctive needs of presidents and presidencies and to the dynamics of U.S. governance. Based on a larger project that seeks to describe and analyze the office of the White House chief of staff over the course of the modern U.S. presidency (Cohen, Hult, and Walcott forthcoming), we here explore how and why the unit has evolved and trace its importance to the conduct of the contemporary presidency. At the same time, we focus on the individuals who have performed this job. Although the office clearly is the hub of the institutional presidency and presidents shape it in specific ways, the people who become chief of staff bring their own talents, interests, and limitations to the position. Chiefs have differed considerably in temperament, their relationships with the president, and the circumstances under which they served. Part of our task has been to tease out whether, how, and why it matters who happens to be chief of staff. In doing so, we take what Jacobs and King (2010, 793) call a "structured agency approach," situating chiefs of staff within "existing ... structures of organizational combat, institutions, and policy." We begin by briefly describing the evidentiary bases for the analysis, followed by the evolution of the position and the office. Then we examine the roles and activities of chiefs of staff, highlighting those who have served presidencies from Ronald Reagan through Barack Obama. Although space constraints necessitate that we deal in conclusions and illustrations, they flow from extensive research (by the authors and others) and numerous data sources. (1) Many reflect the observations of past chiefs of staff and other White House aides (in interviews with the authors, with scholars at the Miller Center, and from the White House Transition Project). Additional information comes from presidential papers, government documents, memoirs, and media reports. Evolution of the Position and Office of Chief of Staff The advent of White House staffing with multiple professionals roughly coincides with most scholars' understanding of the advent of the modern presidency. Nineteenth- and early twentieth-century presidents got along with only one paid professional staffer until Herbert Hoover introduced a four-man top staff in 1929 (Walcott and Hult 1995). (2) Franklin Roosevelt (FDR) had a similar staff until empowered by Congress to add several "administrative assistants" in the late 1930s. Presidents could manage such small staffs (including ushers, gardeners, and messengers, never numbering more than 50) informally, a task at which FDR, in particular, excelled. (3) The White House Office did not increase notably in size until World War II, when it served as a fulcrum for the hastily created units charged with managing the war and the economy during that period. After the war ended, the remnants of these, located in the Office of War Mobilization and Reconstruction, were inloaded into the White House, under the direction of Truman presidential aide John Steelman. Although Steelman's tasks mostly involved administration, he was not fully a chief of staff: he never had authority over the policy staff, headed first by Clark Clifford, then by Charles Murphy. Although the White House had grown significantly, the president still directed its operations. Position of Chief of Staff: From Partisan Learning to Stable Expectations Dwight Eisenhower, with his military background and related emphasis on organization and staffing, initiated the changes in executive management that ultimately laid the foundations for the contemporary White House staff. …