The so-called Orthodox'School of public administration and organizational theory grew from the early work of theorists such as Wilson, Weber and Taylor. Frank Goodnow, an early innovator in the development of administrative law, built on this distinction between politics and administration as a central theme in his influential books Politics and Administration and The Principles of the Administrative Law of the United States.In his view, the business of government can--and should--be separated into two distinct functions : first, the expression of a political will by the people and, second, the implementation of policies that fulfill the expression of that will by public
administrators. In broader terms, the citizenry articulates its goals for a
regtme and, afterward, managers within a public organization work out the necessary details and design appropriate programs to accomplish those goals.