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and others who defined politics and administration as the distribution of values,costs, and benefits. Politicians and bureaucrats both participate in this process ofdistribution, and in it administrators have extensive opportunities to “set pol-icy-initiating proposals, exercising discretion, writing budgets, and determiningthe delivery of services—and through implementation they shape policy formu-lated by elected officials” (Svara , ). The upper arc of the curved line rep-resents the vast expanse of bureaucratic power in policymaking, or, put anotherway, the absence of political control in bureaucracy. The lower portion of thecurved line indicates the incursion of politics into various limited matters of ad-ministration, a form of control over bureaucracy particularly associated with thedelivery of a particular service, the letting of certain purchase or capital construc-tion contracts, or the making of certain administrative appointments. The mixturein policy model of council-manager government has a considerable empirical warrant and fairly represents the common pattern of bureaucratic control in the classiccouncil-manager city setting (Frederickson, Johnson, and Wood ).
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