Beyond Implementation: Developing an Institutional Theory of Administrative Policy Making

Abstract

The ghost of the politics-administration dichotomy haunts implementation theory. After all the critiques, 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.1 Elected officials, in his view, are and should remain the primary source of policy ideas and choices with administrators, in theory, 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.