Politics,Legislatures,and Public Administration

Abstract

In 1960, Samuel Huntington noted that governmental decision-making was quite similar in the executive and legislative branches. Huntington went so far as to suggest that the decision process is legislative rather than executive in character. Thus, the governmental executive lives in an environment which is as much "legislative" as "executive." However, by training and professional orientation that official perceives that legislative process as confusing, irrational and contradictory. The result is threefold. First, the role of the legislature in executive activities is downplayed. Second, the political powers of the executive agencies are marshalled to thwart what is regarded as unnecessary and inappropriate intrusion. Third, and most important, the role of agency politics is misunderstood because the administrator's concept of politics is shaped by the caricatures and misleading views developed during the period when the politics-administration dichotomy was the dominant view.

Huntington's comments deserve more consideration. This paper suggests a framework by which to yield lessons for practice based upon Huntington's perspective. The legislative process should not be examined because it is different, but precisely because aspects are so similar. Further, in examining the legislative decision process and administration, those who have sought change from the rigid adherence to "bureaucratic norms" should find support for alternative styles. Politics, as played out in the legislative organization, incorporates many of the elements required for successful management. Further, factors not suggested there, such as an altered understanding of communication and the inclusion of multiple perspectives, promote management. Concepts such as consensus, value judgment and expertise carry a different connotation in the legislative arena. By accepting those connotations the executive can begin to recognize the legislative element in his/her decision-making.