（以下页码为原书页码，即本书页边码；n表示注释）

AAF，see Army Air Force

Abuses，168，175，293

Accountability：deregulation and，370；to president，276；privatization and，348，357-59；public schooling and，362-63；in public versus private institutions，316；reorganization and，267；rules and，335；in U.S.versus Great Britain，258

ACTION，213

Add-ons，225

Administrative judge（AJ），145-46

Administrative Procedure Act（APA），2，82，129

Adversarial perspective，297，299，305

Advocacy，as executive strategy，209-11

AFDC，see Aid to Families with Dependent Children

Agency types，28，158-71；see also Coping agency；Craft agency；Procedural agency；Production agency

AIDS，271n，341

Aid to Families with Dependent Children（AFDC），337

Airline industry，deregulation of，87

AJ，see Administrative judge

Alabama mental health system，285-86

APA，see Administrative Procedure Act

Arbetarskyddsverket（Sweden），296，303-4

Arbitrary rule：versus justice，326-31；and tradeoffs，326-27

Armies：effectiveness of，3-6，228-29；interservice coordination and，58-59；operation of，365-66；organization of，14-18；small group cohesion in，46-47；task determination in，43-44，45-47

Army Air Force（AAF），185-96；see also U.S.Air Force

Army Corps of Engineers，65，199；interagency task forces and，190-91；leadership at，201；management system at，166；organizational mission at，98-99；programs versus projects and，190

ASV，see Arbetarskyddsverket（Sweden）

Attitudes：beliefs about power of，50-51；restraint on capture and，86-88；and task performance，50-55，67-68

Auftragstatik，16-17，26

Authority：decentralization of，372；imposition of efficient procedures and，349-50；national differences in organization of，297-301；national differences in response to，303-5；privatization and，348-49，359-60；of state，348-49；see also Discretionary authority

Autonomy，183；achievement of，188-92；consequences of concern for，192-94；coordination of agencies and，192-93；defined，182，183n；executives and，181-85；federal personnel system and，149-50，152；innovation and，221；as organizational issue，26-27；of Postal Service，122-29；preference for，over money，179-80；presidential control and，274-75；strategies for maintenance of，28；unification of military services and，185-88；see also Turf maintenance

Behavior，see Task performance

Beliefs，see Attitudes

Blitzkrieg，15，222

BNDD，see Bureau of Narcotics and Dangerous Drugs

Boston Housing Authority，193，334，336

Brazil，310

Budget cutting，214-15

Building tender system，20

Bureaucracy：American regime and，376-78；Japan and，308；in Latin America，309-10；response of，to presidential control，274-76

Bureaucrat，definition of，60

Bureaucrat-bashing，368

Bureaucratic personality，69-70

Bureau of Health and Planning，214-15

Bureau of Narcotics and Dangerous Drugs（BNDD），225，265；see also Drug Enforcement Administration

Bureau of the Budget，258，259；see also Office of Management and Budget（OMB）

CAB，see Civil Aeronautics Board

California：Lakewood Plan，352-53；prison system，8

Cambridge，Massachusetts，361

Campaign finance laws，85

Capture，75，76，81，83-88；see also Interest groups

Career enhancement，and work assignment，172

Career executives：agencies headed by，198，199，200-2；effectiveness of，202；presidential control and，274

Carver High School（Atlanta，Georgia），8-10，21，25

CBO，see Congressional Budget Office

Central Intelligence Agency（CIA）：counterintelligence and，101-2；covert operations at，189；creation of，259，260；defector management and，103；equity in duty assignments and，171-73；functions of director of，57；organizational cultures at，101；reconnaissance satellites and，189；task definition at，56-58

Centralization：of drug enforcement，267；impossibility of，276；in Latin America，309-10；president and，258-59，264，272

Challenger disaster，see National Aeronautics and Space Administration

Change：judicialization of agency procedures and，283；recruitment of professionals and，64-65

China Lake experiment，see under U.S.Navy

CIA，see Central Intelligence Agency

Civil Aeronautics Board（CAB），76，79，87

Civil Rights Commission，as client agency，80

Civil Service Reform Act（CSRA），143，146

Civil Service system：as limit on congressional power，238，239，240；PACE test and，139；preferential treatment and，140，200；presidents and，257-58；see also Office of Personnel Management；Personnel system

Clayton Act，59

Clean Air Act of 1970，281，287，288

Client agency：legislative dominance and，248，249；task definition in，79-80，81-82

Client politics，11，18，76，78，208

“Client-serving ethic，” 100

Coalition-building，251-53

“Code fetish，” 309

COLA，see Cost of Living Adjustment

Coleman Report，9-10

Commodity Credit Corporation，77

Common-site picketing law，216

Community Planning and Development Program（CPD），214-15

Competition：efficiency and，352-53；Postal Service and，125-26

Compliance，in public versus private agencies，193，359

Congress：autonomy of USPS and，124；blame-shifting by，246n；committee reports as agency “guidance” and，243；conflicts among committees in，256；constituency demands and，174；decentralization in，85；executive branch power over agencies and，258-60；House and Senate Select Committees on Intelligence，259-60；means of exercising influence，237-41；micromanagement by，241-44，366-67；nationalized versus geographic representation in，242；presidential control of agencies and，258-60，274-75；reorganization and，268；suits against agencies and，281；watchdog role of，85；see also Congressional control

Congressional Budget Office（CBO），259；Grace Commission report and，318-19

Congressional control，235；and agency environment，248-51；agency response to，251-53；and agency type，244-48；limitations to，238-40；micromanagement in，241-44，366-67；tenure of commissioners and，238，239，240

Constituencies：bureaucrats as，119；control of factors of production and，125，214-15；division of，and autonomy，191；increased court control and，282；influence of，125，131-32，214-15；as source of executive power，202-5

Constraints：coping organizations and，169-70；costs of，331-32；effects of，131-34；efficiency and，317-18；imposed by bureaucratic organization，260；imposed by Congress，263；increased court control and，282；military procurement and，323-25；operation of agencies and，115，366；political，35，44，120-22；procedural organizations and，164；use of surplus revenues and，116-20

Consumer welfare，60-61

Contextual goal，129-34，324

Contract system，363-64

Coordination，see Interagency coordination

Coping agency：costs of constraints and，332；court orders and，291；legislative domination of，245，252；management of，168-71，175；marketlike arrangements and，364；presidential control and，275；type of executive in，200

Core task，25-26，44；cost of changing，232；definition of，224-26；resistance to innovation and，223-24；see also Task definition

Corporatism，311

Correctional institutions，see Prison system

Corrections Corporation of America（CCA），360

Corruption，312

Cost-of-living adjustment（COLA），238-39

Costs：of elimination of waste，323-24；judicialization of agency discretion and，282-84

Counterintelligence（CI），see under Central Intelligence Agency

Courts：access to，and capture，85-86；consequences of intervention by，282-90；effective decisions by，291-92；judges versus bureaucrats and，290-94；national differences in power of，301-2；in parliamentary system，298；relationship of federal agencies to，277-81，282；relationship of local agencies to，281-82；see also Litigation

Covert operations，see under Central Intelligence Agency

CPD，see Community Planning and Development Program

Craft agency：costs of constraints and，332；court orders and，291；legislative domination of，245-48；management of，165-68；presidential control and，275；prevention of abuses in，175；professional standards and，175；sense of mission and，175；task definition in，367；type of executive in，201

Critical task，see Core task；Task definition

CSRA，see Civil Service Reform Act Culture，302；see also National culture；Organizational culture

Customs Service，266

DEA，see Drug Enforcement Administration

Decentralization：capture and，85；of Congress，242；Forest Service mission and，97；in hiring practices，141-42；management of craft organizations and，167-68；number of constraints and，133-34；of teaching，151-53

Deception，and congressional over-sight，252，253

Decision making：as executive strategy，212-14；group-centered，307，308；interagency coordination and，269，271

Defector management，see under Central Intelligence Agency

Defense Acquisition Regulation，321

Defense contracting，324-25，357；see also Military procurement

Defense Reorganization Act of 1986，193

Delaney Amendment，340-41

Demonstration project，see Management experiment

Denmark，350，362

Deregulation of government，369

Disability Insurance（DI），100

Disabled persons，35

Discipline，17，19-20，22-23

Discretionary authority：contextual goals and constraints and，133-34；court challenges to，279-81；distribution of，372；at headquarters level，329-31；housing projects and，333-34；rules and，334-36；at street level，327-29；vulnerability to interests and，73

Discrimination：age，in employment，165n；in competency testing，152；employee dismissals and，145-46；OCR regulations and，66-67；PACE test and，140-41；police behavior and，53-54；privatization and，353-54

DoD，see U.S.Department of Defense Drug enforcement：FBI and，108，180，182-83，189，267；reorganization of，12，265-67

Drug Enforcement Administration（DEA），180；goals at，11，12；reorganization and，265-67；task definition at，47-48

Economic Cooperation Administration（ECA），55-56

Economic Policy Board（EPB），269-70

Economic theory，and public agencies，347-48

Economists：“Chicago School，” 232，255；congressional oversight and，255；deregulation of airline industry and，87；FTC and，60，61，255；judicial empowerment of，285；organization of bureaucracies and，23；task definition for，60，61

EDF，see Environmental Defense Fund

Education：achievement and，9-10，22；privatization and，360-63，375；for veterans，355；see also Private schools；Schools；Teachers

Education for All Handicapped Children Act，338-39

EEOC，see Equal Employment Opportunity Commission

Efficiency：constraints and，317-18，323-25；costs of，323-24；economic definition of，versus constraints，317-18；equity and，132；incentives and，321-23，349；justice and，326-27；privatization and，347-48，349-53；of public versus private agencies，315-17；task definition and，320-21

Electric utilities，193-94，350-51

Employees，in business versus government agencies，114-15

Employment and Training Administration（ETA），214-15

Enforcement system，297-301

Engineers，61-63

Entitlement programs，211

Entrepreneurial agency：external interest pressures and，77-78，80-81；legislative dominance of，249-50；task definition in，80-81；watchdog organizations and，83-84

Entrepreneurial politics，77-78，80，208

Environmental Defense Fund（EDF），84

Environmental impact statements（EIS），65

Environmental issues，130，131

Environmental Protection Agency（EPA）：administration of，85；compliance by government agencies and，194；congressional imposition of standards on，246；court intervention and，281，283-84，287-88；empowerment of professionals in，284；industry-wide rules and，250；leadership of，213；policy on deterioration of air quality，288-89；pollution reduction and，13；public-interest groups and，84；regulation negotiation and，283-84；rules and，342；state implementation plans（SIPs），287-88

Environmental protection laws，342

EPA，see Environmental Protection Agency

EPB，see Economic Policy Board

Equal Educational Opportunity Survey，see Coleman Report

Equal Employment Opportunity Commission（EEOC），145

Equity：in access to courts，290；duty rotation and，171-73；versus efficiency，132；inputs and，353-54；management system and，172-73；markets and，354；privatization and，348，353-57；public schooling and，360-63；in public versus private institutions，316；rule implementation and，326；vouchers and，355-57；see also Fairness

ETA，see Employment and Training Administration

Europe，see also specific countries；contextual goals and，130-31；problems of administration and，376-77；rule-based governance and，335；see also Parliamentary regimes

Evaluation：efficiency criterion and，332，347-48；privatization and，347-48；by results，373-75；of task performance，117-18

Executives：advice to，370-76；agency types and，200-2；appearances and，205；autonomy and，181-85；coexistence of cultures and，105；constituencies as source of power for，202-5；efficiency and，349-50；enforcement and，298-99；essential constraints and，372；influence on policy and，205-9；kinds of，197-200；learned vulnerabilities and，192；operators and，205；organizational culture and，95-96，370-72；organizational mission and，95-101，371；regimes centered in，311-12；rules and，344-45；strategies of，209-16；success of organization and，365；task definition and，367；turf maintenance and，28；see also Career executives

Experimental Housing Allowance Program，355-57

FAA，see Federal Aviation Administration

Factors of production，allocation of，120-29；see also Resources

Fair Labor Standards Act，165n

Fairness：as goal in procurement process，126-27；regulation proposals and，129；responsiveness and，326-27；see also Equity

FBI，see Federal Bureau of Investigation

FBN，see Federal Bureau of Narcotics

FCC，see Federal Communications Commission

FDA，see Food and Drug Administration

Federal Acquisition Regulation，126-27，321

Federal Aviation Administration（FAA），268

Federal Bureau of Investigation（FBI），231；drug enforcement and，108，180，182-83，189，267；external environment of，32；innovation at，230-31；interagency task forces and，190-91；leadership at，199，201；management system at，162-63；Office of Strategic Services（OSS），189-90；organizational mission at，97-98，107；organized crime and，180，182-83；professional leadership at，199；sense of mission，107

Federal Bureau of Narcotics（FBN），265；see also Drug Enforcement Administration

Federal Communications Commission（FCC），76，329-30，339

Federal Maritime Administration，248

Federal Maritime Commission（FMC），74-75，79，84

Federal Trade Commission Act，59

Federal Trade Commission（FTC），213；congressional dominance and，247-48，249-50，254-56；economists and，285；executive strategies for change at，207-8；innovation at，231；interest groups and，82-83；noncongressional government influences on，255-56；task definition at，59，60-61

Fire protection，public versus private，350

Fleet Marine Force，223

Flexibility，302，368

FMC，see Federal Maritime Commission

FNS，see Food and Nutrition Service

FOIA，see Freedom of Information Act

“Follow-on imperative，” 324-25

Food and Drug Administration（FDA）：congressional control and，245-46；political criticism of，85；rules and，340-41；task definition at，80-81

Food and Nutrition Service（FNS），109，180

Food stamp program，108-9，180，182，355

Foreign policy：and administrative acts，41-42；privatization and，358

Foreign Service，94，171-73；see also U.S.Department of State

Forest Service，199；leadership at，201；management system at，166-67；organizational mission in，96-97，107；task definition and，63，64，65

Formality，national differences in，305-7

Formative years of agencies，68

Foundations，83-84

France：cultural attitudes in，305-6；enforcement system in，297；French Revolution，335；German WWII military success and，4-6；organizational culture in，302；politics in，298；rule-based governance and，335

Fraud，elimination of，323-24

Freedom of Information Act（FOIA），129-30

FTC，see Federal Trade Commission

Funeral Industry Practice Rule，82-83

GAO，see General Accounting Office

GATB，see General Aptitude Test Battery

General Accounting Office（GAO），35-36，203，259，318-19

General Aptitude Test Battery（GATE），140

General goal，defined，34n

General Motors，134-35

German army of 1940，3-6，14-18，229

Germany，Federal Republic of，297

GLCM，see Ground-launched cruise missiles

“Goal displacement，” 69

Goals：of Congress，and quasi-autonomous agencies，125；critical task of organization and，25-26；primary versus contextual，129；public versus private management and，10-11；top-down versus bottom-up perspective and，11-12；vagueness of，32-33；see also Contextual goal；General goal；Operational goal

“Goldplating，” 321

Governance problems，375-78

Grace Commission，318-20

Great Britain，see United Kingdom

Ground-launched cruise missiles（GLCM），226

Group values，307-8

Health hazards，tasks at OSHA and，42-43

HEW，see U.S.Department of Health，Education，and Welfare

Hiring practices：internal promotion and，140，141；merit and，139-42；Schedule B appointments，141；1988 selection procedure，142；veteran's preference in，140；see also Personnel system

“Homeporting，” 251-52

Hospitals，efficiency of，350-51

Housing inspectors，193

HUD，see U.S.Department of Housing and Urban Development

Human factors，and task definition，62-63

ICBMs，see Intercontinental ballistic missiles

ICC，see Interstate Commerce Commission

Identity，see Mission，sense of

Ideology：in presidential appointments，261-62；social status versus agency affiliation and，68；task definition and，65-68；see also Attitudes

IEP，see Individualized Education Program

IHHC，see New York Interdepartmental Health and Hospital Council

Immigration and Naturalization Service（INS），158

Imperialism，see Autonomy

Implementation，national differences in，299-301

Imprinting，96

Incentives：attitudes and，51；behavior of operators and，88；behavior of professionals and，60；for compliance with standards，287-88；efficiency and，321-23，349；for government versus private executives，197；information-gathering and transmitting processes and，228-29；innovation and，221；military procurement and，321-23；monetary benefits and，116-20，157；nonmaterial，157-58，174；operation of agencies and，366；for operator involvement in change，231-32；for regulatory negotiation，284n；task definition and，49；see also Peer expectations；Situational imperatives

Individualism，307-8

Individualized Education Program（IEP），338-39

Industrial productivity，54

Industry-wide rules，249-50

Inefficiency，see Efficiency

Infiltration warfare，15

Influence-peddling，242

Informality，288，302，305-7

Innovation：in army doctrine，218-20，222-23；defined，222；desirable top-down changes and，230-31；environmental change and，225；executives and，28，227-32；organizational resistance to，221-26；risk of top-down change and，228-30；role of subordinates in，230-32；task definition and，221-26

INS，see Immigration and Naturalization Service

Interagency coordination，266，268-74；and autonomy，190-91，192-93

Intercontinental ballistic missiles（ICBMs），12，105-6

Interest group agency，see Client agency

Interest groups：congressional influence over agencies and，242；discretion by regulatory agencies and，329-31；entrepreneurial politics and，77-78；in Europe，299；redistribution of access and，84-86；see also Client politics；Public interest groups

Internal Revenue Service（IRS），160，161，174

Interstate Commerce Commission（ICC），78，87，279

Intervenor funding program，130，131-32

Investigative agencies，166；see also Federal Bureau of Investigation

Iran-Contra affair，272-73

“Iron Law of Emulation，” 259-60

IRS，see Internal Revenue Service Italy，298

Japan，297，307-8，311

Joint Chiefs of Staff，186，188，192-93

Joint ventures，see Interagency coordination

Judges，versus bureaucrats，290-94

Juridicial democracy，335

Jurisdiction，see Autonomy

Justice，versus arbitrary rule，326-331；see also Equity；Fairness

Juvenile delinquents，and public versus private agencies，132

Key West Accords，186-87

Labor costs，for public versus private services，351

La Mirada，California，358-59

Lane High School（Queens，New York），22

Latin America，309-10，311

Lawyers，60，61，284-85

Leadership，see Executives；Managers；Presidents

Learned vulnerabilities，191-92

Legal Services Corporation，274-75

Legislation：constraining agency actions，240-41；control of entrepreneurial politics and，249-50；limiting congressional power，238-41；task definition and，59，73；see also Congress；Rules；Statutes

Legislative oversight，see Congressional control

Legislative veto，243n，268

Litigation，and development of regulations，282-83，284-85

Local government，and privatization，358-59

Local government officials，top-down innovation by，229-30

Local law enforcement，13，352-53；see also Police officers

London，England，22-23

McDonald's fast-food restaurant，113-14，135

Magnuson-Moss Act，249

Majoritarian agency，82-83，250

Majoritarian politics，78-79

Management：deregulation of，369-70；effects of court intervention on，282-90；political constraints and，27-28；president's influence on，262-64，272；by White House staff，272-74

Management experiment，373-75

Managers：concern with process versus outcomes and，131；constraints on，113-36；evaluation systems for hiring of，139-42；incentives for operator compliance and，154-75；input focus of，126，127-29；number of，in public versus private agencies，133；performance-based compensation and，143-45；personnel system and，137-53；risk aversion in，132-33；role of subordinates in innovation and，230-32；styles of management and，173-74

Markets，see Privatization

Marshall Plan，see Economic Cooperation Administration

Massachusetts：Department of Public Welfare，52；prison system in，7；Registry of Motor Vehicles，113-14，118，135-36，160-61

Maternity Act，279

Media，and capture，88

Memoranda of understanding（MOUs），260

Mental health professionals，286

Mental hospitals，39，350

Merit，in hiring of public employees，139-42

Merit Systems Protection Board（MSPB），120，145-46

Metro，see Washington Metropolitan Area Transit Authority

Michigan prison system，6-7，8，18-19，328-29

Micromanagement，241-44，366-67

Military bases，241，251

Military procurement：bottom line on，325；decentralization of authority and，372；incentives and，321-23；new technology and，224；program manager and，320-23；social goals and，324；task definition and，320-21；waste and，319-20

Military services：autonomy of secretary of defense and，179-80；disadvantages of communication for，228-29；equity in duty assignments and，171-73；national culture and，302；organizational cultures of，105-6；as procedural organization，163；promotion in，321-22；task definition in，58-59；unification of，185-88；see also Armies；Joint Chiefs of Staff；Pentagon；U.S.Air Force；U.S.Army；U.S.Navy

Military strategy，see German army of 1940

Mining，47

Mission，sense of：advantages of，109-10；agency types and，158-71；autonomy and，182；autonomy in armed services and，187-88；benefits of，101；as challenge to managers，173-74；competing goals and，158；contract officers and，322-23；costs of，110；as incentive，157-58；loss of，110；organizational culture and，26，27；professional culture and，65；resistance to innovation and，222；resistance to regulation and，194；role of executive and，95-101，371；tasks related to，190；tasks unrelated to，371-72；as term，95；see also Organizational culture

Mission-jurisdiction match，187-88，192；see also Autonomy

Money incentives，116-20，157

MOUs，see Memoranda of understanding

MSPS，see Merit Systems Protection Board

NAPA，see National Academy of Public Administration

Narcotics law enforcement，see Drug enforcement

NASA，see National Aeronautics and Space Administration

National Academy of Public Administration（NAPA），264，369

National Academy of Sciences，80

National Aeronautics and Space Administration（NASA）：impact of engineering profession on，62-63；risks in organizational culture and，104；space shuttle program，203-4；task definition at，62-63

National Bureau of Standards，199

National culture，92，301-10；deference versus self-assertiveness and，303-5；formality versus informality and，305-7；groups versus individuals and，307-8

National Defense Advisory Committee，270

National differences，295-312

National Endowment for the Arts（NEA），203

National Endowment for the Humanities（NEH），213

National Environmental Policy Act（NEPA），65，130

National Highway Traffic Safety Administration（NHTSA）：change at，232；entrepreneurial politics，77；impact of engineering profession on，61-62，64；industry-wide rule making and，250；task definition at，61-62；unpopular policies of，235

National Labor Relations Board（NLRB），67，78，339

National Reconnaissance Office（NRO），189

National Resources Defense Council（NRDC），287-88

National Science Foundation（NSF），80

National Security Act of 1947，272

National Security Agency（NSA），106-7

National Security Council（NSC），264，272-73

National Teacher Examinations（NTE），152

NEA，see National Endowment for the Arts

NEES，see New England Electric System

Negotiation，as executive strategy，215-16

NEH，see National Endowment for the Humanities

NEPA，see National Environmental Policy Act

Netherlands，The，362

New England Electric System（NEES），31-32

New Industrial State，The（Galbraith），134

New York City：Department of Parks and Recreation in，315-17；skating rink in，317，321；solid-waste collection in，351

New York Interdepartmental Health and Hospital Council（IHHC），269，270

New York Post Authority，203

NHTSA，see National Highway Traffic Safety Administration

NLRB，see National Labor Relations Board

NOSC，see under U.S.Navy

NRDC，see National Resources Defense Council

NRO，see National Reconnaissance Office

NSC，see National Security Council

NSF，see National Science Foundation

NTE，see National Teacher Examinations

Occupational Safety and Health Administration（OSHA），289；court challenges and，282-83；enforcement and，295-96；interest-group politics and，78，81-82；legislative dominance of，249；management of，85，206-7，216；as procedural agency，163，247，249；rule enforcement and，342，343-44；task definition at，42-43，64，246-47；unpopular policies of，235

OCR，see Office for Civil Rights

OEO，see Office of Economic Opportunity

OFCC，see Office of Federal Contract Compliance Programs

Office for Civil Rights（OCR），66-67，246，278-79，290

Office of Economic Opportunity（OEO），180，274-75

Office of Federal Contract Compliance Programs（OFCC），193

Office of Legislative Affairs，260

Office of Management and Budget（OMB），120，259，264；Office of Information and Regulatory Affairs in，129

Office of Personnel Management（OPM），120，140，147，148，214-15

Office of Presidential Personnel，261

Office of Production Management，270-71

Office of Science and Technology，259

Office of Strategic Services（OSS），57-58，189-90

Office of Surface Mining Reclamation and Enforcement（OSM），67

Office of Technology Assessment，259

Office of War Mobilization（OWM），271

OMB，see Office of Management and Budget

1-2-3 Rule，333-34，336

Open enrollment，361

Openness，377-78

Operational goal，34-36

Operators：in coping organization，169-70；discretionary power of，70-71；involvement in innovative change and，230-32；organizational culture and，27；performance-based compensation and，144；promotion of，143；support from executive and，205；task definition and，33-48；see also Professionals；Task definition；Task performance

OPM，see Office of Personnel Management

Order，maintenance of，as situational imperative，37-40

Organization：of armies，14-18；defined，24；denial of importance of，23-24；versus organizational structure，24；of prisons，18-21；of schools，21-23；system of coordination and，24-25

Organizational culture：agencies with multiple cultures，105-7；as concept，91-93；court awareness of，293-94；executives and，370-72；external constraints and，36；learned vulnerabilities and，129；resistance to new tasks and，107-9；selective attention and，101-5；situational imperatives and，42；at SSA，35-36；at the State Department，42；see also Mission，sense of

Organized crime，180，182-83

OSHA，see Occupational Safety and Health Administration

OSM，see Office of Surface Mining Reclamation and Enforcement

OSS，see Office of Strategic Services

Outcomes，131；assessment of，373-75；contextual goals and constraints and，168；craft agencies and，165-66；field experiments and，373-75；focus on measurable，161-62；impermissible，339-42；observability of，and rules，342-43；at production agencies，160；production agencies and，160，162-63；types of agencies and，158-59；unknown，and SOPs，375；see also Evaluation；Task performance

Overton Park，and Supreme Court，278-79

OWM，see Office of War Mobilization

PACE test，139-42

Packard Commission，320

Paperwork，138，343，344

Park Service，63-64，65

Parliamentary regimes：bureaucracy and，378；enforcement of regulation in，297-301；problems of administration and，376-77

Patrimonial rule，309-10

Patronage system，239；see also Civil Service system；Political executive

Peer expectations，45-48

Pennsylvania，special education in，284-85

Pension law，216

Pentagon，118，209-10；see also Joint Chiefs of Staff；Military services

People，versus organization，23-24

People's Republic of China，347

“Performance ambiguity，” 174

Personality，92-93；see also Bureaucratic personality

Personnel system，139-46，372；bureaucratization versus professionalization and，149-53；change in，146-48；classification in，142-43；congressional control and，238-40；dismissals and，145-46；managers and，137-39，147；merit system and，139-42，143-45；resistance to change in，148；see also Civil Service system

Police officers：chiefs and，205；discretionary authority and，41，327-28，329；factors in shooting by，53-54；legislative domination and，244-45；management system and，170-71，338；rules and，338，344；situational imperatives and，37-38；task definition for，37-38，53；task performance by，67-68；see also Local law enforcement

Policy：judicial intervention and，280，286-90；versus rights，280

Policy implementation，215

Policy making：executive influence on，205-9；judge's role in，286-90，292-93；national differences in，299-300

Political access，redistribution of，84-86

Political constraints，35，44，120-22

Political control，kinds of，236-37

Political executive：budget cutting and，215；relationships and，199；selection of，197-99；Washington careers of，216

Politics：congressional domination and，248-51；enforcement of regulatory policy and，297-301；executive's freedom of action and，208；rules deriving from，120-22

Pork barreling，251-53

Postal Reorganization Act，124

Power：of attitudes，50-51；of Congress over bureaucracy，235-41；enhancement of，by change，228-30；of executives，204-5；judicial preference and，284-86；limitation of，335-36；as uncertainty，330

Presidential versus congressional agencies，275-76

Presidents：appointments made by，260-62；bureaucratic support of，275；coordination by，272；influence of，on FTC，255-56；management of agencies and，262-64；micromanagement by，367；power of，and Congress，258-60；response of bureaucracy to control by，274-76

President's Special Review Board，see Tower Commission

Principal-agent models，155，156

Prior experience，and task definition，55-59，73-74

Prison system：arbitrary rule and，328；compared conditions and，6-8；“control model” for，19-21；court intervention and，281；operation of，366；organization of，18-21；privatization and，359-60；“responsibility model” for，18-19；situational imperatives in tasks in，38-39

Privacy Act of 1974，130

Private schools：teaching in，22，150；vouchers and，360-63，375

Private suppliers，350-53

Privatization：accountability and，348，357-59；efficiency and，350-53；historical examples of，346-47；public services and，373；see also Public versus private agencies

Problems：arbitrary rule and，326-31，332；of inefficiency，317-25，331-32；privatization as solution to，346-64

Procedural agency：costs of constraints and，332；court orders and，291；legislative oversight of，252；management of，163-64；marketlike arrangements and，364；presidential control and，275；surveillance and，174-75；task definition in，367；type of executive in，201-2

Procedure：change of，by presidents，262-64；court intervention in，293-94

Procurement：constraints on，121-22，126-27，240-41；in public versus private institutions，321；special treatment for minorities and，354；see also Military procurement

Production，factors of，see Factors of production；Resources

Production agencies：costs of constraints and，332；court orders and，291；legislative domination of，244，248；management of，159-63；police departments as，170-71；presidential control and，275；rules and，336-37；task definition in，367；type of executive in，200-1

Production agency，top-down view and，11

Professional and Administrative Career Examination（PACE），139-42

Professionalism：craft organizations and，167-68；personnel system and，149-53；procedural organizations and，163-64；task definition and，59-65，74

Professionals：definition of，60；empowerment of，by judicial preference，284-86；recruitment of，and organizational change，64；task definition and，59-65

Program manager，320-23

Programs versus projects，190

Public Citizen，289-90

Public interest groups，287-88，289-90；see also Interest groups

Public schools，see Education；Schools；Teachers

Public versus private agencies：complexities of doing business with，120-22；compliance in，359；coping organizations and，169；efficiency and，349-53；equity and，316；facilities at，118-19；fiscal integrity in，316；labor costs for，351；management and，113-15，134-36；monetary incentives and 116-20；number of managers in，133；organization maintenance a 196-97；quality of service and，113-15；regulation of，193-94；see also Privatization

Quasi-autonomy，124

Racism，see Discrimination；Equity

Rand Corporation，323，325

Rank-and-file employees，see Operator

Red tape，121，142；see also Paperwork Rules；Standard operating procedures

Reduction in Force（RIF），138

Redundancy，as useful，274

Regimes：statist versus non-statist，310-12；see also Parliamentary regimes

“Regneg，” 284n

Regulation：concern for autonomy and，193-94；development of，for litigation reasons，284-85；entrepreneurial politics and，77；see also Deregulation of government

Reorganization，186；of army，218-20；autonomy and，180；failure of，11 12；in HEW，212-13；presidents and，264-68；top-down view of bureaucracies and，265；see also Military services，unification of

Reorganization Objectives Army Division，219

Requests for proposals（RFPs），122

Research agencies，195

Resource dependence，181n

Resources：annual authorizations and 243-44；coalition-building and，251-53；congressional control over，238-39，240，243-44；contir gencies for use of，197；court-ordered policy and，288-89；quality of schools and，9-10；success of German army and，4；superiority of Texas prisons and，8

Responsiveness，and fairness，326-27

Results，see Outcomes

Retired persons，35

Revenues，and incentives，116-20

Rewards，see Incentives

RFPs，see Requests for proposals

RIF，see Reduction in Force

Risk aversion：autonomy and，191-92；bureaucratic personality and，69-70；constraints and，129；contextual goals and，132-53；court intervention and，282

ROAD，see Reorganization Objectives Army Division

Rogers Act of 1924，94

Rule of Unanimity，269

Rules，333-45；in business versus government agencies，114；congressional micromanagement by，242-44；consequences of，338-39；delivery of public services and，363；difficulty of adopting，232；discretion and，327-29，334-36；gains versus losses from，342-45；governing procurement，126-28；impermissible outcomes and，339-42；industry-wide，207-8；opportunity for access and，377；as political，121；tasks and，336-39；see also Regulation；Standard operating procedures

San Jose，California，362

SAT，see Scholastic Aptitude Test

Scandal，and task definition，80-81

Scholastic Aptitude Test（SAT），140

Schools：as coping organizations，224-25；court intervention and，281-82；decentralization，372-73；differences between good and bad，9-10；innovation and，224；management by rule and，338-39；operation of，366；organization of，21-23；see also Education；Teachers

SCRAP case，279，280，281

SEC，see Securities and Exchange Commission

Secrecy，and national differences，300-1

Secretary of Defense，212

Secretary of Health，Education，and Welfare，212-13

Securities and Exchange Commission（SEC），330-31

Senior Executive Service（SES），143，261

Separation of powers，376-78

SES，see Senior Executive Service

Shell Oil Company，194

Sherman Antitrust Act，78-79，82

Shirking，155-57，174

Sierra Club，281

Situational imperatives，52-53，75，169

Small group cohesion，46-47

Social goal，see Contextual goal

Social Security Administration（SSA）：conflicts in goals of，35；cost-of-living adjustment and，238-39；efficient outcomes at，160；facilities of，118；legislative domination of，244，253；management by rule and，336；means-test programs and，100-1；organizational mission at，99-101，160；problems in，368；as procedural agency，244；as production agency，244；task definition at，34-36

SOPs，see Standard operating procedures

Special Representative for Trade Negotiations，260

SSA，see Social Security Administration

SSI，see Supplemental Security Income

Standard operating procedures（SOPs），164，221，375

Standards：professional，59-65，74，167-68；and rules，343-44

Standing，doctrine of，280-81，286

State-centered regimes，311

State employment agency，161，165-66

Statutes：embodying contextual goals，129-30；guidance from，in task definition，71；see also Congress；Legislation

Stereotypes about government agencies，114-15

“Strategic governance，” 213

Strategy：executive，28，209-16；military，5-6，17-18；for organization maintenance，207-8

Stretch-out，323

“Sunshine” act of 1976，130

Supplemental Security Income（SSI），100，206

Supply Priorities and Allocations Board，271

Sweden：deference to authority in，303-4；enforcement system in，295-96，298；rule-based governance and，335

Tactics，see Strategy；Technology

Task：versus goal，32-34；of judge versus bureaucrat，290-92

Task definition：by agencies，246-47；attitudes and，54-55，67-68；bias toward maintaining，222；bureaucratic personality and，69-70；congressional dominance and，244-48；executives and，371-72；external interests and，79-83；goals in，34-36；human factors and，62-63；military procurement and，320-21；peer expectations in，45-48；political ideology and，65-68；postgovernment employment prospects and，86-88；prior experience and，55-59，73-74；professional standards and，59-65；rules and，336-39；sense of mission and，95-96；situational imperatives in，36-44；at Social Security Administration，100；technology in，42-44

Task performance：attitudes and，50-55，67-68；control of shirking and，155-57；earnings and，117-18；evaluation of，117-18；merit-pay system and，143-45；see also Evaluation；Incentives；Outcomes

TAT，see Thematic Apperception Test

Teachers：bureaucratization versus professionalization of，150-53；competency tests for，152；legislative domination and，244-45；situational imperatives in task of，39-40；see also Schools

Technology：government agencies and，223-24；task determination and，42-44

Tennessee Valley Authority（TVA），12；“grass-roots democracy” and，184；interest groups in task definition at，72-74；organizational culture at，95；professionalism at，87；regulation of，194；selective attention to tasks at，103；surplus revenues and，116

Tenure of commissioners，as limit on congressional control，238，239，240

Texas prison system：authority in，25；“control model” in，19-21；court reform of，293-94；rules and，328-29；superiority of，6-8

Thematic Apperception Test（TAT），69-70

Top-down versus bottom-up perspective，11-13

Tower Commission，273

Transaction costs，358-59

Trash collection，350

Trench warfare，14-15，43

Turf maintenance，28；for executive versus organization，197，217；in public versus private sector，196-97；see also Autonomy

TVA，see Tennessee Valley Authority

Twain，Mark，Junior High School（Brooklyn），292

UMTA，see Urban Mass Transportation Administration

Uncertainty，as power，330

United Kingdom：civil service in，257-58；deferential culture in，304-5；Official Secrets Act，301；politics in，297-98；power of parliament in，237-38；regulation in，296-97

United States Postal Service（USPS）：constraints on function of，122-29；efficient outcomes at，160；employee performance evaluation in，155-56；Origin and Destination Information System（ODIS）at，156，162；as production agency，201

Urban Mass Transportation Administration（UMTA），214-15，285

U.S.Air Force（USAF）：aircraft procurement and，186-87；culture of，105-6；effect of creation of，267；ICBMs and，12，105-6；interservice coordination and，58-59

U.S.Army：acquisition of helicopters，187；Active Defense，219；Air-Land Battle，219；changes in warfighting doctrine and，218-20，222-23；guerrilla forces in，225；helicopter fleet，187；pentomic form and，218；Reorganization Objectives Army Division（ROAD），219；standard operating procedures（SOPs）in，164；unification of armed services and，185-86

U.S.Constitution，and administration，376

U.S.Department of Agriculture：Food and Nutrition Service（FNS），180；food stamp program，108-9，180，182，355；national forests and，184

U.S.Department of Defense（DoD）：budget cutting in，214；creation of，186，188，204；Defense Logistics Agency（DLA），126-28；Rocky Mountain Arsenal，194；under Weinberger，209-10

U.S.Department of Health，Education，and Welfare（HEW）：advocate role of executive at，210-11；budget-cutting in，214；Bureau of Drug Abuse Control and，180；effect of reorganization and，267-68；Food and Nutrition Service（FNS）and，180；performance evaluation in，117；see also Welfare offices

U.S.Department of Housing and Urban Development（HUD）：congressional control and，275，276；voucher program and，356-57，see also Housing inspectors

U.S.Department of Justice，Antitrust Division，84

U.S.Department of Labor，165-66，215-16；Office of Federal Contract Compliance Programs，193

U.S.Department of State：Agency for International Development，180；change at，225；under Kissinger，262；management of embassy construction and security，183-84；Moscow Embassy staff and，12；organizational culture of，90-91，93-95；privatization and，358；situational imperatives in task definition at，40-42；United States Information Agency and，180

U.S.Department of Treasury，275-76

U.S.Department of Veterans' Affairs，248

U.S.Marine Corps，220-21，245

U.S.Navy，186；carrier task force in，226；China Lake Demonstration Project，138，146-48，372；coalition-building by，251-52；control over nuclear power and，184-85；interservice coordination and，58-59；Naval Ocean Systems Center（NOSC），137-38；organizational cultures of，106

U.S.Post Office，36；see also United States Postal Service

U.S.Supreme Court，see Courts

USAF，see U.S.Air Force

Used Car Rule，83

USPS，see United States Postal Service

Values，69

Variance procedure，287-88

Vietnam War，43-44，164，187

VISTA，see Volunteers in Service to America

Volunteers in Service to America（VISTA），180

Voting，54

Vouchers，355-57，361，362，375

War Production Board（WPA），271

War Resources Board，270

Washington Metropolitan Area Transit Authority（Metro），103

Waste，318-20，323-24

Watchdog organizations，85

Water Pollution Control Act of 1972，342

Weapons builders，see Defense contracting；Military procurement

Weather Service，199

Welfare offices：factors in task performance at，51-53；focus on measurable outcomes at，161；influence of professional norms in，63；task definition in，63；use of rules and，337-38

Western Electric Company，Hawthorne plant，48

Whistle-blowers，88

“Working personality，” 37-38

World War Ⅱ：coordination of economy and military procurement in，270；German military success in，3-6，14-18，229；military doctrinal changes after，218-20，222-23；mission-jurisdiction match and，188

World War Ⅰ tactics，14-15，43

WPA，see War Production Board

Wyoming Fish and Game Department，191