A more carefully argued examination of the politics-administration dichotomy was offered by
Frank J. Goodnow (1859–1939) in his book, Politics and Administration, published in 1900.
Goodnow, one of the founders and first president (in 1903) of the American Political Science
Association, was one of the most significant voices and writers of the progressive reform movement.24
To Goodnow, modern administration presented a number of dilemmas involving
political and administrative functions that had now supplanted the traditional concern with the
separation of powers among the various branches of government. Politics and administration
could be distinguished, he argued, as “the expression of the will of the state and the execution of
that will.