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Report 2021—26 the Office of Presidential Personnel

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Report 2021—26 the Office of Presidential Personnel THE WHITE HOUSE TRANSITION PROJECT 1997-2021 Smoothing the Peaceful Transfer of Democratic Power REPORT 2021—26 THE OFFICE OF PRESIDENTIAL PERSONNEL James Pfiffner, George Mason University The White House Transition Project Smoothing the Peaceful Transfer of Democratic Power WHO WE ARE & WHAT WE DO THE WHITE HOUSE TRANSITION PROJECT. Begun in 1998, the White House Transition Project provides information about individual offices for staff coming into the White House to help streamline the process of transition from one administration to the next. A nonpartisan, nonprofit group, the WHTP brings together political science scholars who study the presidency and White House operations to write analytical pieces on relevant topics about presidential transitions, presidential appointments, and crisis management. Since its creation, it has participated in the 2001, 2005, 2009, 2013, 2017, and now the 2021. WHTP coordinates with government agencies and other non-profit groups, e.g., the US National Archives or the Partnership for Public Service. It also consults with foreign governments and organizations interested in improving governmental transitions, worldwide. See the project at http://whitehousetransitionproject.org The White House Transition Project produces a number of materials, including: . White House Office Essays: Based on interviews with key personnel who have borne these unique responsibilities, including former White House Chiefs of Staff; Staff Secretaries; Counsels; Press Secretaries, etc. , WHTP produces briefing books for each of the critical White House offices. These briefs compile the best practices suggested by those who have carried out the duties of these office. With the permission of the interviewees, interviews are available on the National Archives website page dedicated to this project: . White House Organization Charts. The charts cover administrations from Ronald Reagan to Barack Obama and help new White House staff understand what to expect when they arrive and how their offices changed over time or stayed the same. Transition Essays. These reports cover a number of topics suggested by White House staff, including analyses of the patterns of presidential appointments and the Senate confirmation process, White House and presidential working routine, and the patterns of presidential travel and crisis management. It also maintains ongoing reports on the patterns of interactions with reporters and the press in general as well as White House staffing. International Component. The WHTP consults with international governments and groups interested in transitions in their governments. In 2017 in conjunction with the Baker Institute, the WHTP hosted a conference with emerging Latin American leaders and in 2018 cosponsored a government transitions conference with the National Democratic Institute held in November 2018 in Montreal, Canada . Earlier White House Transition Project funding has included grants from the Pew Charitable Trusts of Philadelphia, Pennsylvania and The Moody Foundation of Galveston, Texas. THE KINDER INSTITUTE ON CONSTITUTIONAL DEMOCRACY. A central element of the University of Missouri’s main campus in Columbia, Missouri, the Kinder Institute on Constitutional Democracy prepares students for lives of thoughtful and engaged citizenship by equipping them with knowledge of the ideas and events that have shaped our nation’s history. https://democracy.missouri.edu . © White House Transition Project 1997-2021 For the White House Transition Project ii For the Kinder Institute on Constitutional Democracy https://whitehousetransitionproject.org https://democracy.missouri.edu/ Martha Joynt Kumar, Director (202) 285-3537 Justin Dyer, Director (416) 832-2121 Terry Sullivan, Exec. Director (919) 593-2124 Smoothing the Peaceful Transfer of Democratic Power TABLE OF CONTENTS WHO WE ARE & WHAT WE DO II EXECUTIVE SUMMARY 1 Begin early 1 Expect to be swamped with applications 1 Clarify the roles of OPP and Cabinet Secretaries 2 Vet all potential nominees carefully 2 Provide sufficient resources for OPP 2 Prepare nominees for confirmation 2 Figure 1. Nominations and Senate Confirmations for Presidents Reagan to Trump 3 DEVELOPMENT OF THE OFFICE OF PRESIDENTIAL PERSONNEL 4 TYPES OF APPOINTMENTS AND NUMBER OF POSITIONS 8 Table 1. Political Appointments Available to the President 9 Presidential Appointments Requiring Senate Consent 9 Presidential Appointments without Senate Consent 9 Senior Executive Service 10 Schedule C 10 FUNCTIONS AND RESPONSIBILITIES 10 1. Organizing the Office Itself 12 2. Personal Presidential Involvement with the OPP 13 3. Pressures on OPP Personnel 15 CHALLENGES TO OPP EFFECTIVENESS 16 1. Filling Positions with Qualified People 17 2. Flood of Applicants and Demands for Patronage 17 3. Loyalty and Subcabinet Appointments 20 4. Disincentives for Potential Nominees 23 5. Confirmation, Delays, and Vacancies 26 Figure 2. Pace of Deliberations by Stages in the Appointments Process 27 LESSONS LEARNED 31 Smoothing the Peaceful Transfer of Democratic Power THE WHITE HOUSE TRANSITION PROJECT 1997-2021 Smoothing the Peaceful Transfer of Democratic Power REPORT 2021—26 THE OFFICE OF PRESIDENTIAL PERSONNEL James Pfiffner, George Mason University The White House Transition Project EXECUTIVE SUMMARY The role of the Office of Presidential Personnel (OPP) is to help the president recruit and nominate people who fit the president’s priorities to lead the executive branch. The primary responsibility is for about 1200 nominees who must be confirmed by the Senate (PAS); within that number, the primary focus is on about 500 positions at the highest levels of the executive branch. OPP may also play a role in recruiting and placing lower level appointees. BEGIN EARLY In order to be most effective and hit the ground running, the organizational capacity for recruiting presidential appointees should be in place immediately after the election. This implies that planning should begin before the nominating conventions and be up to speed in the early fall of election years. The transition personnel operation should be highly confidential and separate from the campaign or conflict between the two may be counterproductive. Personnel planning for the new administration will be most effective if the person in charge of personnel recruitment has agreed has agreed to head OPP during at least the first six months of the new administration. If this person is to be effective, s/he should be a commissioned officer and have the title of Assistant to the President, the highest rank of White House staff (limited to 25 persons). EXPECT TO BE SWAMPED WITH APPLICATIONS OPP will be bombarded with applications from all sides – the campaign, Congress, the political party, self initiated job seekers, and even from the president elect’s family. OPP can expect 40,000 applications within the first few weeks after election; the Obama administration received more than 300.000 applications for jobs. Many supporters of the president will be highly qualified, but being an effective campaigner is different from managing large government programs and agencies. Honorary and part time positions can be sued to reward deserving supporters who are not qualified for high level positions. The long term success of 2 WHTP Institutional Memory Series the president’s administration will depend heavily upon the managerial and policy competence of the people appointed to run the government. CLARIFY THE ROLES OF OPP AND CABINET SECRETARIES The experience of recent presidents has been that newly appointed cabinet secretaries will naturally want to put together their own management teams. The White House staff tends to suspect that cabinet secretaries are likely to recruit people who are loyal to the cabinet secretary but not necessarily to the president. OPP can make it clear that the president reserves the right to name any political appointee in the departments and agencies, but this authority can be used sparingly, and with a light hand. If OPP is not the funnel through which all presidential nominees must pass, the president may be personally swamped with office seekers. VET ALL POTENTIAL NOMINEES CAREFULLY Recent administrations have faced difficulties in making presidential appointments because of unforeseen problems, such as unpaid taxes or hiring undocumented workers. If instances of such problems are uncovered after the president makes a nomination, it will be embarrassing, and the nomination may have to be withdrawn. Thus careful and thorough vetting is necessary before any presidential nomination. Initially the social media accounts of prospective nominees can be scanned to spot potential problems early. PROVIDE SUFFICIENT RESOURCES FOR OPP A new presidency needs top level executives in place quickly, especially since 9/11. The slow pace of appointments has frustrated recent administrations. On May first in the Clinton, Bush, and Obama administrations, only about half of the most important positions in national security were filled. At the 100 day mark, President Reagan had filled 27 percent of PAS positions, but President Obama had filled only 17 percent of his. At the one year mark, Reagan had 86 percent of his PAS appointees on board, though President Obama had appointed only 64 percent of his. At 100 days, President Trump had only 26 PAS positions filled, total, significantly behind his four predecessors (see Figure 1). Investing personnel and budgetary resources in OPP will pay off in the quality and timeliness of presidential appointments.
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