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February 18, 2007

Why The Government and Big Companies Find It Harder To Get Stuff Done (SO LONG IT'S ALMOST LIKE WAR AND PEACE)

This is something I've been wondering about since I was a teenager at my first job, a US govt summer student position doing robotics at the Nat'l Bureau of Standards (now the Nat'l Int of Standards and Technology). There were lots of smart people, and yet the job was annoying because of the constant impact of politics.

Maybe I've finally figured out why, now that I'm over twice as old. More recent inspirations for this were my earlier Civ vs. chess post and Doris Kearns Goodwin's recent great book, Team of Rivals, a book about Lincoln and his cabinet.

What Game Are You Playing?

Many government employees, and people who choose to live in big hierarchies play a different kind of game than many of the rest of us in their thinking. Like chess, there are a set number of high positions to play for, with just a very small number of top dogs. There are many very talented players playing for these positions, so talent alone can't get you in; you must make everybody who might otherwise win look bad to your superiors or at least keep them from looking good. Thus, employees playing for high position are likelier to be be disinterested in transparent evaluation and more interested in spinning and investigating to make each other look bad. Congress is an excellent example - it passes bureaucrat-bashing bills as often as crime bills, and their usual result is to make things harder for some segment of the government.

What drew me to this realization is Salmon's actions in the Lincoln Administration. Salmon P. Chase was a real cold fish, but also Lincoln's excellent Secretary of the Treasury. Among other things, he introduced paper currency and did most of the work of arranging to pay for the unbelievably expensive Civil War. Salmon was also devoutly anti-slavery. And yet, he opposed Lincoln's great Emancipation Proclamation. Why? Because he privately wanted slavery ended by one President Salmon P. Chase (and did he fear he wouldn't've done it as cleverly as Lincoln?).

Ironically, one result of this behavior is that the government looks like it's full of stupid people because it underperforms other parts of our society. But it's really full up to the gills with smart people.

Outside the government and other set hierarchies, things are different. For most of us, If we want to do something and have the appropriate talent and training, mostly, we can either persuade somebody to employ us to do somethin pretty similar or do it on our own hook at least part time. We are in effect creating new positions to do new things all the time.

Unless you happen to enjoy intrigue, a job in a hierarchical world is likely to be less fun and more bureaucratic. Like playing chess, somebody wanting to win the bureaucracy game must make best use of powerful allies and put opposing pieces out of the game to thrive. Detective work thrives in Washington, since that can be a way of putting people out of the gamek.

Much of the rest of democratic society works in a more positive way. The game's more like Civ, where you can construct new units, new places to build things, and new ways of doing things. In the real world, you can make new advances as well and create new groups. This makes most jobs better because it creates more and more better and better jobs as technology and the amount and effect of money in circulation to invest advance.

How Many People Are Above You?

There's another contributing factor: depth of hierarchy. The bigger a hierarchy is, the worse it usually performs. Let's suppose you're a grunt employee for a second, actually doing stuff. If anybody in the hierarchy above you is a bad manager, ANYBODY, your work is likely to be unpleasant and/or come to naught. Since a fair number of managers aren't up to their jobs, the more managers above you in the grunt job, chances get pretty good that ONE isn't up to his job.

The way the world's set up make statistics work hard against that poor grunt, because there's a multiplication for each level. I had six levels above me going up to President Reagan; even a 10% chance of any given mgr not being up to his job would give me a bit over a 50/50 shot of having a good mgt chain above me.

Some Fine Examples:

  • In both the War of 1812 and Civil War, the armies stationed near DC performed noticeably worse than elsewhere (DC arguably burned due to politics in the former war!). In the Civil War, Lincoln ended up having to bring in a general with a command far from DC to command the armies well. One reason Grant succeeded was that he tried to avoid politics as much as possible, despite DC's proximity, and what must've been plenty of visitors at least trying to talk to him about Presidential possibilities.

    Some recent examples of questionable governmental performance:

  • Federal Panel [not NIST] Rejects Paper Trail For E-Voting
  • Why cell phone outage reports are secret
  • White House Clamps Down On USGS Publishing
  • Global Warming Dissenters Suppressed?
  • Climate Researchers Feeling Heat From White House

    The link's now stale, but Texan politicians took advantage of real Chinese espionage and questionable claims made by paranoid LANL directors to advance the case that UTexas and/or big donor corporatons should assume at least partial responsibility for LANL. The result was life being made hard for researchers at LANL, and a continuation of a long slipping-away of many of the best to more reasonable environments.

    Of course, all those recent examples happened in the Bush II Administration, but my point is that this underperformance happens in every Administration. I could come up with similar links for any Administration. It's endemic to government.

    Hedging and Conclusions

    Now, there are government positions that are alot better - govt universities consistently score among our best research universities. The key is that the positions there are pretty fluid, and the hierarchy is designed to be weak. You still get the obnoxiousness of having your bosses (the Legislature) constantly working for votes by spinning you as a liberal fool who will bill the honest taxpayer for $trillions in travel funds and abortions.

    One conclusion would be that if you have to work for the govt, be a political appointee. They have fewer people above them and good access to people in high places. And be ready to resign.

    The government pretty much HAS to be this way. We don't know how to avoid it. Outsourcing to contractors has helped somewhat, but it's only a modest improvement. And that's brought its own new games to get contracts.

    The only real workaround for this is probably to replace as much of high-level government goals as possible with multiply-sourced private replacements. But that's much more easily said than done. It'll never be realistic for the Armed Forces or State Department, for example.

    It oughtta be possible to free govt research labs at least somewhat. Maybe by making them more like universities, with less hierarchy and rules? And it's not just directly govt-run labs, but also the university-run, govt-funded labs like Los Alamos, JHU APL, etc.. But, again, that's a hard thing to nail down?

    Ideas?

    Posted by Jon Kay at February 18, 2007 12:08 AM
  • Comments

    Perhaps someone with lots of time in (or at least near) government organizations can speak to them. But in the case of large private organizations, I have noticed one small difference from the situation you outline: in a really large number of cases, a bad middle manager gets worked around by first level managers who are actually interested in getting the job done. A bad executive can still trash everything, but a bad VP (and that seems to be the most common "level of incompetence" going) tends to have much less bad impact than you seem to suggest.

    Why might that be the case? Possibly because a lot of first level managers in the private sector are not really on a management career path. They are actually grunts who found that they could do a decent job at supervising, and by doing so could allow everybody else to get on with getting work done. They spend a lot of time talking to other first level managers, and coordinating the work of their people. And even more in coordinating the circumvention of bad middle managers.

    Occasionally, a really good middle manager does crop up -- and there is much rejoicing among all those who work for her. Because even with good first level managers finessing roadblocks, a bad middle manager still makes things harder to get done -- possible, but still harder. One result of this is that, if that good middle manager doesn't get promoted, they not only go elsewhere, big chunks of the staff that worked for them folllows them. (An option which is rather less available in the civil service.)

    Retention of good staff is a serious concern in most big organizations these days -- at least the ones who are paying attention. So those good middle managers will tend to get promoted, not only to keep them around, but to hang on to all the good people under them who might leave with them. Those companies who do so, get stuff done as a side benefit. Those that don't, are looking at withering away and collapsing -- perhaps not fast enough to worry executives who are just there to strip assets for themselves, but fast enough to concern anyone with a long-term stake in the company.

    Posted by: wj at February 18, 2007 02:41 AM

    I find it humourous that a summer as an intern at NIST (about the least governmental acting organization in the federal government) gives you expertise.

    One of the things you missed is that, in the government, you do not get promoted for doing your job. If you are a first line manager in the personnel office, you do get promoted by having great customers, having a low error rate, or efficient processing. The humor resources manager quickly figures out that the way to get promoted is to chiar the Christmas party, chair the Black History month committee, and organize the summer picnic (while never calling it a picnic).

    Thus, the first line manager does little managing, never innovates, and tries to ensures that none of her subordinates know enough to be able to move up.

    Posted by: superdestroyer at February 18, 2007 07:19 AM
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