Report 2021—10 White House Staff And
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THE WHITE HOUSE TRANSITION PROJECT 1997-2021 Smoothing the Peaceful Transfer of Democratic Power REPORT 2021—10 WHITE HOUSE STAFF AND ORGANIZATION: TEN OBSERVATIONS Martha Joynt Kumar, Director 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. See more information on the Institute at: https://democracy.missouri.edu . © White House Transition Project 1997-2021 For the White House Transition Project ii For the Kinder Institute on Constitutional Democracy http://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 THE WHITE HOUSE STRUCTURE 3 1. White House Office Structures Rarely Change. 3 2. Organizational Flexibility: Layering in New Units and Hiring Outsiders. 3 3. Integrating the Vice President and First Lady into the West Wing. 4 4. Parties Organize Differently. 4 THE WHITE HOUSE STAFF 5 5. Leadership Staff Integration. 5 6. Stability of Top Leadership. 5 Table 1. Assistant to the President Titled Staff – Inauguration to August 31 Year Four 6 7. Three Types of White House Offices. 7 8. A Successful White House Staff Blends Five Types of Knowledge. 7 THE PRESIDENT 8 9. Staff Reflect a President: Strengths and Weaknesses. 8 10. Presidents Use the Resources and Style That Brought Them. 9 SUMMARY 10 CONTACT INFORMATION 10 APPENDICES 11 iii Smoothing the Peaceful Transfer of Democratic Power iv THE WHITE HOUSE TRANSITION PROJECT 1997-2021 Smoothing the Peaceful Transfer of Democratic Power REPORT 2021—10 WHITE HOUSE STAFF AND ORGANIZATION: TEN OBSERVATIONS* Martha Joynt Kumar, Director White House Transition Project The White House is the wheelhouse when it comes to presidential decision-making. People, policy, politics, and publicity all come together in the White House as a President establishes his leadership position and swiftly moves an agenda. It is for that reason presidents make early choices for key White House posts prior to choosing Cabinet members and their deputies. Departments and agency positions take time to fill and a President wants to proceed rapidly to take advantage of the good will that exists in the early days of an administration. In that effort, besides a President’s time, the second most valuable resource a President has is his staff. The organization of White House staff offices as well as where and how a President distributes coveted top positions are key to understanding White House operations as well as the President and his priorities. What follows are ten observations about White House staffing structures, staff members, and the impact of presidents on staff. Accompanying the staff discussion is a set of organization charts helpful to understanding the details of White House operations. Organization charts illustrate the staff choices presidents make. When Leon Panetta came into the Clinton White House as Chief of Staff, he saw a White House organization chart as a priority. “There was really no chain of command,” he said. “There was no organizational chart that you could point to. As a matter of fact, I asked the question about getting an organizational chart and there was none to be found. So, first and foremost, was the development of kind of a basic organizational chart. … How do I want to organize under the Chief of Staff. With deputies and then under them who should have responsibility. So, develop a real organizational chart as to who is responsible to who, and who supervises who, and to organize those responsibilities.”1 Because organization charts provide basic information, the White House Transition Project created overall staffing charts to see the staffing choices the last six presidents made. Because such charts did not exist, we created them from sources where we could find full listings of White * Thanks to Terry Sullivan and Kathryn Dunn Tenpas for their helpful comments. 1 Interview Leon Panetta, Martha Joynt Kumar, White House Interview Program, Monterey Bay, CA., May 4, 2000. https://www.archives.gov/files/presidential-libraries/research/transition-interviews/pdf/panetta.pdf 1 2 White House Transition Project General Series House staff, including internal White House phone books, National Journal’s Capital Source, and The Federal Yellow Book, which is now Leadership Connect. The Appendix has organization charts focusing on the overall White House staff operations of Presidents Trump (2017, 2019, 2020), Obama (2009, 2016), George W. Bush (2001, 2007) , and Clinton (1993, 1996). There is one each for George H.W. Bush White House (1992) and President Reagan (1987). We also have charts for the individual offices we study, which are found on our website. [For a full set of charts, go to: https://www.whitehousetransitionproject.org/wp-content/uploads/2020/10/WHTP2021- 100-White-House-Overall.zip]. Together, the charts demonstrate two aspects of White House organization.2 First, they illustrate the continuity of the White House offices under the six presidents and second, show how those presidents assigned their limited, but growing, number of commissioned staff, the highest ranking White House staff members. While there are at least 400 White House staff members, the leadership team is found among the commissioned staff. A President is limited by law and budget to 25 Assistants to the President, 25 Deputy Assistants to the President, and around 70 Special Assistants.3 How a President distributes staff among the offices reflects the chief executive’s organizational choices and, by inference, decision-making structure. Staff organization tells us who has access to a President and which offices are key to a President. Was there, for example, a strong Chief of Staff with political, communications, and policy planning units close-by as was the case with Leon Panetta in President Clinton’s White House in 1994- 1996, or, as in 1993-1994, the President’s choice to have many top advisers report directly to him? Such choices reflect important preferences about a President’s decision-making process, a significant element in understanding White House operations. 2 The White House Transition Project developed the organization based on White House phone books. Where we could locate them, we used internal White House phone books as the most