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Additional info for Bureaucratic Landscapes: Interagency Cooperation and the Preservation of Biodiversity (Politics, Science, and the Environment)

Sample text

While not a universal law, the managerial pursuit of autonomy is a sufficiently robust assumption to use as a foundation for constructing theory. It also has tremendous implications for the evolution of interagency relationships. Before delving into the idea of managerial autonomy and its implications, I first want to dispel the notion that there might be other things line managers desire more than autonomy. In this regard, the two prominent challengers are budgets and turf. In the case of budgets, Niskanen (1971: 38) provided the basic rationale, arguing that budgets can serve as a proxy for nearly all agency preferences.

If punishment is not germane, then interagency cooperation is largely shaped by the potential for joint gains. In other words, rather than simply dividing an existing pie, they see the possibility of making the pie bigger through joint gains (Lax and Sebenius 1986). Cooperation is a complex variable because it includes individual, agency, and temporal components. Cooperation at the agency level can be measured by counting agreements, plans, or treaties, but measuring cooperation as a dichotomous variable oversimplifies the behavior to be explained.

Therefore, the budgetmaximization hypothesis does not preclude the possibility of altruism because bureaucrats may care most about the public interest and accordingly desire larger budgets to provide additional public services. In this sense, the budget-maximization hypothesis is similar to the hypothesized reelection imperative of members of Congress, because elected officials must first hold their offices if they are to continue providing legislative services (Mayhew 1974; Fiorina 1989). Yet Niskanen concluded that agencies oversupply services, which is a popular refrain among those advocating privatization and small government.

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