Abstract
Existing studies underestimate the barriers to using the budgetary process as a mechanism for "steering" public organizations. This analysis describes the apparently infinite adaptability of public administrators to changes in executive priori ties by examining budgeting under two successive, sharply contrasting chief executives in Delaware. The study also looks at how budget examiners respond to changing executive priorities and at how this may, in fact, undermine executive leadership. It also identifies alterations in legislative behavior which follow shifts in executive priorities and agency actions. Two very different patterns of budgetary behavior are identified and important limitations on "steering" and executive leadership are outlined.
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