Exorcising the ghost of the politics-administration dichotomy: an institutional theory of administration policy making

This article takes implementation theory one critical step further. It argues that administrative policy making is a separate, distinguishable process, not a stage in or component of the legislative policy-making process. In addition, it argues that the institutional setting for policy making has a major influence on policy ideas, choices, and actions. Administrative agencies form a distinct institutional setting for policy politics, and setting influences policy outcomes. The implications of the institutional perspective for understanding policy making, policy analysis, and the legitimacy of public organizations are examined.

The ghost of the politics-administration dichotomy haunts implementation theory. Although numerous scholars have declared the dichotomy dead,⁽¹⁾ administrative policy making is still seen as a component or step in the policy process that is dominated by elected officials. For example, Kelman recently examined the different institutional settings of policy making.⁽²⁾ Elected officials, in his view, are and should remain the primary source of policy ideas and choices while administrators remain responsible for translating these ideas and choices into practice. Other scholars underscore the lack of effective control by legislators and elected executives. But even those who acknowledge administrative initiative and autonomy see administrators as servants, however weak their masters.

This article takes implementation theory one critical step farther. It argues that administrative policy making is a separate, distinguishable process—not merely a stage in or component of legislative policy making. Policies can and do originate in administrative agencies. These innovations gather supporters and critics, are tested and refined, and can become part of the routine with little, if any, involvement by elected officials or political appointees. Legislation and executive orders commonly ratify existing administrative policies rather than initiate administrative involvement.

In addition, the institutional setting for policy making has a major influence on policy ideas, choices, and actions. Administrative agencies form a distinct institutional setting for policy politics. The institutional setting, it is argued, influences policy outcomes. Administrative policy making is not, however, an entirely discrete process. It intersects with legislative policy making at important and predictable points. The two policy processes, legislative and administrative, are loosely and variably coupled.⁽³⁾ The central distinction is that administrative policy making is dominated by the ideas, norms, routines, and choices of nonelected public employees, whereas legislative policy making is dominated by the perspectives of elected officials. Administrative policy making can occur in the bureaucracies of the President or of Congress.

The argument that these two processes—legislative and administrative—are distinct does not, however, deny their essential overlap. The overlap between these two fundamentally different policy settings has fostered the delusion that there is only one policy setting with legislative and administrative components. Clearly elected officials influence administrative policy making, and, just as clearly, administrators influence legislative policy making.⁽⁴⁾ Nevertheless, their interaction remains obscure without a clearer perception of the profound differences between the two settings. As stated, the importance of administrative policy making seems obvious and uncontroversial, but its implications are strongly resisted.⁽⁵⁾

Public administration and implementation theories have not adequately recognized the importance of administrative policy making in modem welfare states.⁽⁶⁾ Before more fully developing these ideas, four examples of administrative policy making are briefly reviewed.     

Time to vote?

Despite the centrality of voting costs to the paradox of voting, little effort has been made to measure these costs accurately, outside of a few spatially limited case studies. In this paper, we apply Geographic Information Systems (GIS) tools to validated national election survey data from New Zealand. We calculate distance and travel time by road from the place of residence to the nearest polling place and combine our time estimate with imputed wages for all sample members. Using this new measure of the opportunity cost of voting to predict turnout at the individual level, we find that small increases in the opportunity costs of time can have large effects in reducing voter turnout.     

British Intelligence and the ‘Fifth’ Occupying Power: The Secret Struggle to Prevent Jewish Illegal Immigration to Palestine

At the end of the Second World War, British intelligence struggled to enforce strict limits imposed on Jewish immigration to Palestine. Holocaust survivors and Jews wishing to escape communism in Eastern Europe flooded the western Zones of occupation in Germany and Austria, while the Zionist movement worked to bring them to Palestine. Illegal immigration to Palestine was the key policy dispute between Britain and the Zionist movement, and a focus for British intelligence. Britain sought both overt and covert means to prevent the boarding of ships at European ports which were destined for Palestine, and even to prevent the entry of Jewish refugees into the American zones. This article highlights Britain's secret intelligence-gathering efforts as well as its covert action aimed to prevent this movement. It highlights a peculiar episode in the ‘special relationship’ between Britain and the United States, during which cooperation and partnership was lacking. British intelligence promoted a rumour that Soviet agents were using Jewish escape lines to penetrate Western Europe and the Middle East in order to persuade American authorities to prevent the movement of Jewish refugees. Instead, this article argues, American intelligence secretly cooperated with the Zionist organizers of the escape routes so to expose Soviet agents. Britain's attempt at deception backfired, and provided effective cover for the movement of hundreds of thousands of Jews during a critical period. Meanwhile its intelligence had dramatically improved, but policymakers failed to reassess Britain's ability to sustain immigration restrictions and the indefinite detention of tens of thousands of illegal migrants.     

Intelligence,reason of state and the art of governing risk and opportunity in early modern Europe

Abstract

Drawing upon primary and secondary historical material, this paper explores the role of intelligence in early modern government. It focuses upon developments in seventeenth- and early-eighteenth-century England, a site-specific genealogical moment in the broader history of state power/knowledges. Addressing a tendency in Foucauldian work to neglect pre-eighteenth-century governance, the analysis reveals a set of interrelated processes which gave rise to an innovative technique for anticipating hazard and opportunity for the state. At the intersection of raison d’État, the evolving art of government, widespread routines of secrecy and a post-Westphalia field of European competition and exchange, intelligence was imagined as a fundamental solution to the concurrent problems of ensuring peace and stability while improving state forces. In the administrative offices of the English Secretary of State, an assemblage of complex and interrelated procedures sought to produce and manipulate information in ways which exposed both possible risks to the state and potential opportunities for expansion and gain. As this suggests, the art of intelligence played an important if largely unacknowledged role in the formation and growth of the early modern state. Ensuring strategic advantage over rivals, intelligence also limited the ability of England's neighbours to dominate trade, control the seas and master the colonies, functioning as a constitutive feature of European balance and equilibrium. As the analysis concludes, understanding intelligence as a form of governmental technique – a way of doing something – reveals an entirely novel way of thinking about and investigating its myriad (historical and contemporary) formations.     

Translating Le Dœuff's analytics: On Le Dœuff's Anglo‐Australian interception

This article proposes an interdisciplinary approach to studying the dynamics that condition the evolution of various path dependencies of media systems, comprised of specific industry institutions, their formations, the markets they create, usage practices, audience constellations and textual formations. The interdisciplinary approach involves the integration of the semiotics of culture approach (Lotman) with the evolutionary economics approach. As the former studies the dynamics of inter-semiotic translations to interpret the evolution of media's new textual forms and the latter focuses on phenomena such as resource constraints or industry exchange relationships, then in aggregation, they may help to interpret the manifold dynamics that might contribute both to the formation of diachronic continuities as well as discontinuities in a culture. The empirical case that the article focuses on is the early evolution of the mobile web, its path dependence on the preceding media, especially desktop web, and its potential divergence from this “parent platform”, its gradual emancipation as an autonomous media domain     

Political morality and constitutional settlements

This paper presents a way of thinking about how to respond to the pluralism of modern societies that avoids any commitment to contractualist norms of political justification. The argument developed appeals to the notion of a constitutional settlement. Constitutional settlements are complex on-going social practices that both express certain values to which political societies are committed and establish procedures for resolving disputes among members of these societies. As such, they are a product of both moral commitment and the balance of power. The paper shows how constitutional settlements relate to issues of stability and non-subjugation in politics, and explains how they can ground a distinction between justice and legitimacy.     

Spatializing the Social Networks of Gangs to Explore Patterns of Violence

The majority of spatial studies of crime employ an inductive approach in both the modeling and interpretation of the mechanisms of influence thought to be responsible for the patterning of crime in space and time. In such studies, the spatial weights matrix is specified without regard to the theorized mechanisms of influence between the units of analysis. Recently, a more deductive approach has begun to gain traction in which the theory of influence is used to model influence in geographic space. Using data from Los Angeles, we model the spatial distribution of gang violence by considering both the relative location of the gangs in space while simultaneously capturing their position within an enmity network of gang rivalries. We find that the spatial distribution of gang violence is more strongly associated with the socio-spatial dimensions of gang rivalries than it is with adjacency-based measures of spatial autocorrelation.     

Forensic Discrimination of Dyed Hair Color: II. Multivariate Statistical Analysis*,†

Abstract: This research is intended to assess the ability of UV–visible microspectrophotometry to successfully discriminate the color of dyed hair. Fifty‐five red hair dyes were analyzed and evaluated using multivariate statistical techniques including agglomerative hierarchical clustering (AHC), principal component analysis (PCA), and discriminant analysis (DA). The spectra were grouped into three classes, which were visually consistent with different shades of red. A two‐dimensional PCA observations plot was constructed, describing 78.6% of the overall variance. The wavelength regions associated with the absorbance of hair and dye were highly correlated. Principal components were selected to represent 95% of the overall variance for analysis with DA. A classification accuracy of 89% was observed for the comprehensive dye set, while external validation using 20 of the dyes resulted in a prediction accuracy of 75%. Significant color loss from successive washing of hair samples was estimated to occur within 3 weeks of dye application.