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I think of earmarks as either proposed or imposed, either merited or unmerited, and as being part of the budget process or off-books.
1. Proposed earmarks are simply line items, specific items, in a budget. Managers always propose such things, and at some point budgets, once approved, consist of earmarks. Projects and parts of projects, programs and the like. Those are developed by those who have a need. Now, those needs are sometimes skewed--the administration may not acquiesce to the planners' department requests and priorities, they may be out of line with what's needed. Imposed earmarks are those that a senator or congressperson decides are to be imposed, regardless of what the managers say. Sometimes a state will request the senator or congressperson to earmark things to prevent the administration from pushing money towards *its* pet projects. So there's a need for the mechanisms. But imposed earmarks aren't all in that category, by any means.
2. One problem is that managers propose a budget as a whole, and when a piece is carved out and put to a project they don't want, it skews their priorities--perhaps the top-rated project is defunded, or smaller essential projects get defunded. You get "your" requested amount, but it doesn't do the trick. A lot of the earmarks, but not all, are simply unmerited--they're for pet projects because of media attention, or lobbyists, or friends of Senator X, or important businesses, or they simply get money for Senator X's state when Senator Y's state really needs more infrastructure improvements.
"Hon, you do such a great job with the $150 I give you each week for the food budget, but I think I want to have filet mignon with truffles on Friday when my boss comes over." "But that'll eat up $120 of it on one meal!" "And I know you'll do a masterful job scouring money from elsewhere for the baby formula!" A bad "I Love Lucy" moment.
3. The earmarks can be imposed as part of the budget process. Then we know they're there. Or they can be attached as riders, buried in other bills. Supposedly that's not done anymore. But it's probably still a going practice. It means that it's hard to track down earmarks. Notice that the *funding* may be approved in a bill according to Hoyle, but it's possible to bury in something completely different a provision saying that $200 million of the highway funds for Maryland have to be committed to painting the Scott Key Bridge pink. No appropriations there: Just a restriction on use.
There's another point. A lot of earmarks are for one-time projects, doling out federal money to projects which deserve money, but not necessarily federal money, at least not outside the usual channels. There are ways to apply for federal funding for projects. Writing to a senator or representative short-circuits the process: It may be a worthy project, but doesn't play by the rules. The earmark process breeds lobbyists; lobbyists produce temptation. Don't like lobbyists? Dispose of earmarks, and you'll see fewer lobbyists.
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