Since bureaucracies and bureaucrats routinely engage in political behavior, the need to account theoretically for the bureaucracy’s political role is justified. Politics is generically defined as the authoritative allocation of values, or the process of deciding “who gets what, when and how” (Easton 1965; Lasswell 1936). Numerous studies confirm that bureaucracies and bureaucrats routinely allocate values and decide who gets what, that bureaucracies logically engage in “politics of the first order” (Meier 1993, 7). Theories of bureaucratic politics therefore begin by accepting what has long been empirically observed; that is, in practice, administration is not a technical and value-neutral activity separable from politics. Administration is politics (Waldo 1948).