Administrative institutions often have important implications for the allocation of scarce resources. To some extent, therefore, they reflect the interests of those who have a stake in policy implementation. Although scholars have devoted increased attention to this fact, current theories that seek to explain bureaucratic structure as a reflection of politics are severely limited in range. In addition, they provide little insight as to the kinds of interests that underlie specific institutional arrangements. Future research should seek to identify contextual variables that condition institutional choice within the administrative process. Scholars have shown a heightened interest in the political sources of bureaucratic structure. Thus, although it is hardly new, the idea that organizational arrangements and procedures within the administrative process reflect the interests of those who stand to be affected by policy implementation has been given much more explicit attention. Rational choice theorists have been especially ambitious in developing this thesis. In this article I will describe and then critique perspectives that view administrative design as an instrument of political control. Leading efforts to theorize about the systemic role of bureaucratic structure will be limited in two broad respects. The more obvious is that the determinants of institutional choice are much more varied than economic models suggest. The contractual metaphor employed by such explanations, in which structure is intertwined with the goals of specific programs, cannot be applied to many if not most constraints on public administration. A more damning criticism of rational-choice theory is that, even where they are valid, its assumptions about the relationship between delegated authority and program design provide little insight concerning the implications of particular structural choices for particular types of interests. Notwithstanding its pretensions 591/Journal of Public Administration Research and Theory I would like to thank Jim Anderson, Frank Baumgartner, Jim Clingermayer, and Ken Meier for their comments on earlier drafts of this article. J-PART 7(1997):4:591-613 This content downloaded from 157.55.39.198 on Thu, 21 Jul 2016 04:06:48 UTC All use subject to http://about.jstor.org/terms Searching for a Theory of Bureaucratic Structure to scientific explicitness and logical rigor, neoinstitutionalism has merely contributed to an already confused body of plausible but conflicting proverbs. The limitations of efforts to develop a coherent theory of bureaucratic structure suggest that we can gain a better understanding of the subject by identifying contextual factors that shape the motives and preferences of political actors.
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