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The Forging of Bureaucratic Autonomy: Reputations, Networks, and Policy Innovation in Executive Agencies, 1862-1928 PDF

499 Pages·2001·19 MB·English
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PRINCETON STUDIES IN AMERICAN POLITICS: HISTORICAL, INTERNATIONAL, AND COMPARATIVE PERSPECTIVES SERIES EDITORS lRA KATZNELSON, MARTIN SHEFfER, THEDA SKOCPOL A list of titles in this series appears at the end of the book THE FORGING OF BUREAUCRATIC AUTONOMY R E P UTA T I 0 N S, N E T W 0 R K S, A N D POLICY INNOVATION IN EXECUTIVE AGENCIES,1862-1928 Daniel P. Carpenter PRINCETON UNIVERSITY PRESS PRINCETON AND OXFORD Copyright © 2001 by Princeton University Press Published by Princeton University Press, 41 William Street, Princeton, New Jersey 08540 In the United Kingdom: Princeton University Press, 3 Market Place, Woodstock, Oxfordshire OX20 ISY All Rights Reserved Library of Congress Cataloging-in-Publication Data Carpenter, Daniel P., 1967- The forging of bureaucratic autonomy : reputations, networks, and policy innovation in executive agencies, !862-1928/ Daniel P. Carpenter. p. em.-(Princeton studies in American politics) Includes bibliographical references and index. ISBN 0-691-07009-1 {alk. paper)-ISBN 0-691-07010-5 (pbk.: alk. paper) I. Executive departments-United States-History. 2. United States. Congress-History. 3. Bureaucracy-United States-History. 4. Government executives-United States-History. 5. Political planning-United States-History. I. Title. II. Series. JK585 .C37 2001 351.73'09'034-dc21 2001036260 British Library Cataloging-in-Publication Data is available This book has been composed in Times Roman Printed on acid-free paper.oo www.pup.princeton.edu Printed in the United States of America 10 9 8 7 6 5 4 3 2 10 9 8 7 6 5 4 3 2 (Pbk) To Kathleen EUen Carpenter and John Edward Carpenter Conten~ ------------------------------------ List of Illustrations ix List of Tables xi Acknowledgments xiii Abbreviations XV Introduction One Entrepreneurship, Networked Legitimacy, and Autonomy 14 Two The Clerical State: Obstacles to Bureaucratic Autonomy in Nineteenth-Century America 37 Three The Railway Mail, Comstockery, and the Waning of the Old Postal Regime, 1862-94 65 Four Organizational Renewal and Policy Innovation in the National Postal System, 1890-1910 94 Five The Triumph of the Moral Economy: Finance, Parcels, and the Labor Dilemma in the Post Office, 1908-24 144 Six Science in the Service of Seeds: The USDA, 1862-1900 179 Seven From Seeds to Science: The USDA as University, 1897-1917 212 Eight Multiple Networks and the Autonomy of Bureaus: Departures in Food, Pharmaceutical, and Forestry Policy, 1897-1913 255 Nine Brokerage and Bureaucratic Policymaking: The Cementing of Autonomy at the USDA, 1914-28 290 viii CONTENTS Ten Structure, Reputation, and the Bureaucratic Failure of Reclamation Policy, 1902-14 326 Conclusion: The Politics of Bureaucratic Autonomy 353 Notes 369 Archival Sources 459 Index 465 Illustrations 1.1. The Centrality of the Mezzo Level in Executive Department Politics 20 2.1. The Structure of the Interior Department in 1905 52 3.1. The Percentage of Annual Postal Mileage Covered by Railroad, 1845-95 78 4.1. The Rise and Eclipse of the Postal Deficit, 1883-1912 115 4.2. Cost Reductions in Free Delivery, 1896-1908 117 4.3. The Standardization of Free Delivery Operations, 1896-1908 123 4.4. The Expansion of RFD Routes, 1890-1912 134 5.1. Postal Savings Card, 1920 160 6.1. The Dominance of Northeastern States in USDA Recruitment before Merit Reform, ca. 1883 190 6.2. The Dominance of Plains States in USDA Recruitment after Merit Reform, ca. 1897 194 7.1. The Growth of USDA Expenditures for Farmers' Cooperative Demonstration Work (FCDW), 1904-24 252 8.1. Pinchot and Wiley: "Government Officers Whom the Special Interests Are Assailing" 284 9.1. Filling the Progressive Vacuum: The USDA and the Farm Organizations, 1870-1930s 316

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Until now political scientists have devoted little attention to the origins of American bureaucracy and the relationship between bureaucratic and interest group politics. In this pioneering book, Daniel Carpenter contributes to our understanding of institutions by presenting a unified study of burea
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