Expert Opinion, Agency Characteristics, and Agency Preferences

David E. LewisWoodrow Wilson School of Public and International Affairs, Princeton University, Princeton, NJ 08540 e-mail: delewis{at}princeton.edu e-mail: clinton{at}princeton.edu (corresponding author) The study of bureaucracies and their relationship to politicalactors is central to understanding the policy process in theUnited States. Studying this aspect of American politics isdifficult because theories of agency behavior, effectiveness,and control often require measures of administrative agencies'policy preferences, and appropriate measures are hard to findfor a broad spectrum of agencies. We propose a method for measuringagency preferences based upon an expert survey of agency preferencesfor 82 executive agencies in existence between 1988 and 2005.We use a multirater item response model to provide a principledstructure for combining subjective ratings based on scholarlyand journalistic expertise with objective data on agency characteristics.We compare the resulting agency preference estimates and standarderrors to existing alternative measures, discussing both theadvantages and limitations of the method. Authors' note: We thank Tom Hammond, George Krause, and JoshuaTucker for helpful comments. We are grateful to Simon Jackmanand Shawn Treier for generously providing their code and oursurvey respondents for their time and expertise.