This study develops an "historical power struggle" approach to contest leading state theories' interpretations on the making of the National Industrial Recovery Act. The historical power struggle approach stresses the continuity of policy-making and emphasizes two important stages of policy analysis: the historical antecedents that contribute to policy formation, and the legislative process. To go beyond the limits of both class-centered and state-centered approaches, we argue that class struggle occurs not only outside the state, between and within classes and class fractions, it also occurs within the state through state managers who are rational actors with bounded rationality.
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