In his encyclopedic description of what we know about public administration, James Q. Wilson claims to have little interest theory and expresses the opinion that theory has little to offer to and understanding of bureaucracy.
I wish that this book could be set forth in a way that proved, or at least illustrated, a simple, elegant, comprehensive theory of bureaucratic behavior. I have come to have grave doubts that anything worth calling “organization theory” will ever exist. Theories will exist, but they will usually be so abstract or general as to explain rather little. Increasing explanations will exist, some even supported with facts, but these will be partial, place-and time-bound insights. Many scholars disagree with me. More power to them. (xi-xii).