Waldo argued that at the heart of the problem with administrative theory is a version of the problem James Madison struggled with in Federalist No. 10: How do you preserve individual liberty without destroying the freedoms that make it possible? For Madison, it was the dilemma of constructing a government strong enough to protect individual liberty without making it vulnerable to the forces that would crush the liberties of others for their own selfish interests. For Waldo, “The central problem of democratic administrative theory, as of all democratic theory, is how to reconcile democracy . . . with the demands of authority” (1952, 102). How do we construct a theory that accommodates the hierarchical and authoritarian nature of the bureaucracy, the foundation of the modern administrative state and a seemingly necessary component of contemporary government, with the seemingly contradictory egalitarian, inefficient ideals of democracy? Waldo bestowed this grand and sweeping question upon the discipline rather than provide its answer, but the question is surely enough to justify the need to meld administrative theory with political theory, to motivate the search for a theory of bureaucratic politics.