Dilemmas of a Modern Science Bureau in a Post-Modern WorldDilemmas of a Modern Science Bureau in a Post-Modern WorldCivilityProcesses that identify and secure common interestsThe Goal?Human dignityProduces a shared believed-in(single text) “map” of how the world works, sufficient to identify and secure common interestsOptimal Intelligence FunctionParticipatoryIdentifying interestsIdentifying questionsAccessibleUnderstandableComprehensiveIncluding factors hard tomeasure but importantRelevantto the immediate situationEmpiricalCost-effectiveTimelyStandards1879 PresentUSGSNational Biological Service19931896 1905 1939Division of Ornithology& MammalogyDivision of Biological SurveyBureau of Biological Survey1996BRDBiological Resources DisciplineStructures of authority & control (internal)Biological Resources Discipline (BRD)BRDBRDTradition of Tradition of notnotcharging charging ““customerscustomers””for administrative burdenfor administrative burden& enhance agency prestigeto serve customersProduce science…Goals and goalGoals and goal--like statementslike statementsReliableImpartialAccuratePredictive modelsDecision support toolsResource ManagersPlannersDecision-makers“citizens”Agencies“become a world leader”“to strengthen our scientific leadership”“to strengthen…our contribution”to serve customersProduce science…Goals and goalGoals and goal--like statementslike statementsReliableImpartialAccuratePredictive modelsDecision support toolsResource ManagersPlannersDecision-makers“citizens”AgenciesGiven evolutionary theory…I. SelfII. Family (near “kin”)IV. The “greater good”III. The group of immediate resourcesharers (e.g., agency or interest group)???R. Trivers W. HamiltonINCENTIVESCONSCIENCEPotential for Goal arrest, Goal inversionPersonal advancement(individual special interests)BudgetsPrerogativesPrestigeBudgets (wealth)Prerogatives (power)Prestige (respect)BudgetsPrerogativesPrestigeEnlightenmentRectitudeSkillRespectAffectionPowerWealthWell-beingAgency advancement(agency special interests)Service of customers(customer special interests)Service of society(societal commoninterests)The parenthetical “customer”Potential for Goal arrest, Goal inversionPersonal advancement(individual special interests)BudgetsPrerogativesPrestigeBudgets (wealth)Prerogatives (power)Prestige (respect)BudgetsPrerogativesPrestigeAgency advancement(agency special interests)Service of customers(customer special interests)As overtly prescribed by USGSInstitutionalized Goal arrestCONGRESSStructures of authority & control (external)GAOGovernmentAccountabilityOfficeBudgetOPMOffice ofPersonnelManagementOMBOffice ofManagement& BudgetDOIDepartmentof InteriorDirk KempthorneEXECUTIVEU.S. CodePublic LawsBLMBureau ofLandManagementNPSNationalParkServiceFWSFish &WildlifeServiceBORBureau ofReclamation“CUSTOMERS”(& budgetary allies?)BRDJustifying myths (doctrine) → legitimized formulaeClassical liberalismCapitalismBusiness/corporate model of government(increasingly since the Reagan era, circa 1980)Justifying myths (doctrine) Classical liberalismCapitalismBusiness/corporate model of government(increasingly since the Reagan era, circa 1980)→ legitimized formulae“Services” should be provided by the private sectorLess “government” is better than moreGovernment provides “products”Appraisal should be based on delivery of “products”(physical outcomes)Humans are fundamentally venal(especially government employees)DownsizingBudgetary “starvation”Competitive sourcing↑ reporting requirements↑ emphasis on (physical)products↑ burden of prohibitiveregulationsLess is more?BIOLOGICAL RESOURCESOutcomes & effects↓$↑AdministrativeburdenReporting requirementsBureaucratic procedure↑Intrinsic costsSalaries $↑CostsMoney $Time $EnergyMorale↓Money, time & energy to do research (produce “product”)Outcomes & effects↓$↑AdministrativeburdenReporting requirementsBureaucratic procedure↑Intrinsic costsSalaries $↑CostsMoney $Time $EnergyMorale↓Money, time & energy to do research (produce “product”)↑Costs of “product” $Charge “customers”administrative costsDOI 15%non-DOI 24%BRDOutcomes & effectsIn context of history…During the legacy move of NPS, FWS & BLM scientists into the National Biological Survey and then USGS, only salary money was taken from parent agenciesBRD scientists require outside money (from DOI or non-government sources) to do virtually any researchScience entrepreneurs in competition wt academics & contractors for research fundsBRDOutcomes & effectsBRDBRD scientists become less competitive with increased costs from charging “customers” for administrative overheadPast norms of business are also violated, creating ill-willamong traditional “customers”Outcomes & effectsCONGRESSGAOGovernmentAccountabilityOfficeBudgetOPMOffice ofPersonnelManagementOMBOffice ofManagement& BudgetDOIDepartmentof InteriorDirk KempthorneEXECUTIVEU.S. CodePublic LawsBLMBureau ofLandManagementNPSNationalParkServiceFWSFish &WildlifeServiceBORBureau ofReclamation“CUSTOMERS”(& budgetary allies?)↓↓↑↑↑↑↑↓↓↑BRDOutcomes & effectsOutcomes & effects OMB-administered appraisalJustifying myths (doctrine) → legitimized formulaeBureaucratic / Scientific management(since circa 1900)BRDJustifying myths (doctrine) Bureaucratic / Scientific management(since circa 1900)→ legitimized formulaeBRDFrederick Taylor(ism) (1856-1915)Gifford Pinchot (1865-1946)Iconsof modernitySCIENCEIMPLEMENTATIONPOLITICS“The public”works out its’ different interests through elections & “politics”Implementation is a technical problem of optimizing physical outcomesElected officialsproduce unambiguous policiesImpartialbureaucratsimplement unambiguous policiesImpartial scientistsprovide information needed to solve objective physical problemsPHYSICAL OUTCOMESPOLICY FULFILLMENTThe linear model of scientific-bureaucratic managementJustifying myths (doctrine) → legitimized formulaeResearch Grade Evaluation (RGE) – “Product”Agency scientistsInternal review policiesAgency elitesInstitutionalized criteria / norms of scientific practice► Quantity of publications► Quality of publications (journals/citations)► “Relevant”► “Reliable”► “Impartial,” Non-provocative (absence of “inflammatory” statements; absence of policy advocacy or criticism; absence of overt or implicit criticismof budgetary allies)Plus, institutionalized