Other early writes joined Wilson in talking. at least analytically. about the distinction between politics (or policy) and administration. More practical reformers went further, Creating governmental forms, such as the council-manager plan for local government, that were based on separation of policy and administration. As we will see later in this form of government, the council presumably makes the policy and city manager carries it out. The council engaged in politics (or policy) and the manager in administration. Over the first few decades of this century, however, the distinction between policy and administration was increasingly broken down even in council-manager governments. Managers found that they had expertise that was needed by policy makers and began to be drawn into the policy process. The increasing involvement of administrators in the policy process was in part attributable to the facts that the operations of government were becoming more complex and the technical and professional skills needed to operate public agencies were dramatically increasing.