Cabinet

CABINET. This body, which has existed since the presidency of George Washington, rests on the authority of custom rather than the Constitution or statute. During Washington's presidency the cabinet consisted of only four positions: secretary of state, secretary of the treasury, secretary of war, and attorney general. The size of the cabinet has grown steadily since. By the early 2000s, it was composed of the heads of the major federal administrative departments: STATE, TREASURY, DEFENSE, JUSTICE, INTERIOR, AGRICULTURE, COMMERCE, LABOR, HEALTH AND HUMAN SERVICES, HOUSING AND URBAN DEVELOPMENT, TRANSPORTATION, VETERANS AFFAIRS, and EDUCATION. In terms of money spent, number of persons employed, and scope of legal authority, these are the most significant units of the administration. The heads of these departments are presidential appointees, subject to CONFIRMATION BY THE SENATE and serving at the choice of the president.

Although all presidents have, periodically, held formal cabinet meetings, the role of the cabinet in presidential decision making has generally been limited. The importance of the cabinet varies depending on the particular president (for example, Dwight D. Eisenhower and Lyndon B. Johnson relied on the cabinet more than Franklin D. Roosevelt or John F. Kennedy did), but as a collective body it does not play a central role in any administration. Frequently cabinet meetings are largely symbolic; they are held because of the expectation that such meetings take place. The cabinet collectively may lack significance, but individual members can have great influence in an administration because of their expertise, political skill, or special relationship to the president. Examples of this kind of influence were noted with the service of John Mitchell as attorney general under Richard M. Nixon; Secretary of Defense Robert McNamara under Kennedy and Johnson; Attorney General Robert Kennedy under Kennedy; and Secretary of State James Baker under George H. W. Bush.

Frequently and increasingly, the expanding White House staff (personal assistants to the president) has over-shadowed cabinet members. Also of considerable importance in any administration are informal advisers to and confidants of the president. In no area have cabinet members found their influence with the president more severely challenged than in the realm of foreign affairs. In particular, the post of national security adviser, a non-cabinet position, has consistently generated conflict and rivalry with the secretary of state. Although the secretary of state technically holds a higher-ranking position, the national security adviser typically enjoys comparable access to the president, and in some cases even greater access, as during the administrations of Kennedy and Nixon. Similar rivalries continue to characterize the cabinet's relationship with the ever-expanding White House staff.

The cabinet in the United States, unlike that in most parliamentary systems, does not function as a collegial executive; the president clearly is the chief executive. Cabinet members in the course of their work find that their survival and success generally do not depend on their colleagues or on any sense of collegiality; rather, they must often fend for themselves. Particularly crucial are their own relationships to the president, the clientele of their agency, the Congress, and the national media. Also in contrast to parliamentary systems, U.S. cabinet members may not serve concurrently in the legislative body. If a person is a member of Congress when appointed to the cabinet, that person must resign the congressional seat.

BIBLIOGRAPHY

Fenno, Richard F. The President's Cabinet: An Analysis in the Period from Wilson to Eisenhower. Cambridge, Mass.: Harvard University Press, 1959.

Neustadt, Richard E. Presidential Power and the Modern Presidents: The Politics of Leadership from Roosevelt to Reagan. New York: Maxwell Macmillan, 1990.

Dale Vinyard/A. G.

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