the popular expectations of the plan (Level One) and the practicalities of governance that managers encounter in making the plan,work devel The business model, for instance, which sells well to voters by establishin council-manager government on the basis of a busi- ness corporation and which sharply separates policy from administration, is in practice a difficult, if not an impossible dichotomy to achieve on a daily working basis,because, as numer- ous political scientists have noted,' so much policy"slips and slops' into administration that the distinction between the two becomes both fuzzy and blurred. Similarly, the second valueofneutral expertise implicit in a manager's official title may warm the hearts of voters because of its apolitical symbolic appeal. but neutrality on the practical level of running cities is extraordinarily hard to achieve in pluralistic c
ommunities where a five-man council may indeed have five different opinions about any issue it faces. Also, the value of pragmatic reform may sell the plan well, but sometimes at a price, in that managers are expected to achieve the humanly impossible under the plan, such as reducing taxes in an inflationary economy.