Beyond the Days of Wine and Roses: Intergovernmental Management in a Cutback Environment

Abstract

F or more than 20 years, the theory of has strongly influenced teaching, research, and practice in the relations field. According to this view, the operation of the federal system practically since its inception has been characterized by a sharing, rather than the separation of powers and responsibilities.' Activities associated with the performance of governmental functions-making policy, raising revenues, administering services-are said to have been cooperative and collaborative ventures in nearly every area. This role sharing requires accessibility, negotiations, and mutual accommodation on the part of the members of the intergovernmental partnership. The rising popularity of cooperative federalism has been accompanied by a growth in the size and scope of governmental activity, especially at the national level. Many of the constitutional, judicial, and political barriers to the expansion of the federal government's involvement in domestic affairs have fallen. The federal role has become bigger, broader, and deeper, particularly in areas that were traditionally state and local responsibilities.' As a result of these changes, contemporary relations bear little resemblance to those of two decades ago. Although pressures for greater involvement continue to be exerted, countervailing conditions also are present. Inflation, unemployment, energy shortages and costs, and taxpayer unrest have affected nearly all governments. If these developments produce major and lasting shifts in national domestic priorities, spending commitments, and fiscal capacity, more fundamental adjustments in relations can be expected during the 1980s. To some degree the expansion of federal resources, influence, and power is consistent with the sharing and partnership themes of cooperative federalism. However, the nature, pace, extent, and impact of this phenomenon raise issues that are not adequately addressed by proponents of this theory. Moreover, as governmental growth rates slow or decline and management moves from an expansionist to a cutback orientation, a reformulation of cooperative federalism appears warranted to take into account the forces of competition, conflict, and centraliza-