（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