Controlling the Enforcement Bureaucracy

Abstract

This chapter demonstrates how the President’s control over immigration policy depends intimately on the structure and culture of the enforcement bureaucracy. These features of the bureaucracy in turn shape presidential policymaking. In particular, low-level executive branch officials play a crucial role in effectuating the enforcement power, as they are the ones responsible for the daily exercise of discretion within the system. To see how these dynamics have played out within the Executive Branch, the chapter studies the Obama administration’s efforts to centralize enforcement discretion in order to control line-level agents and contrasts those efforts with the early decisions of the Trump administration. It focuses on the attempts by political officials to tame the discretion of Immigration and Customs Enforcement (ICE) agents. President Obama’s efforts to discipline the decision-making of these line officials culminated in his two signature initiatives designed to insulate upward of five million unauthorized immigrants from removal. The bureaucratic reality of presidential immigration law has been on display equally during President Trump’s administration, including through efforts to centralize control over discretion where doing so has proven necessary to advancing the President’s policy agenda.