"Political theorists are aware that the old-fashioned model of state power, according to which elected officials make policy decisions, which are then faithfully enacted by a loyal cadre of public servants, is hopelessly outdated. The complexity of the modern state, not to mention the difficulty of the economic and social problems it confronts, is such that a great deal of rule-making power is delegated to public servants. Yet if public servants are not merely in the business of administration, but are also deciding questions of policy, how are they making these decisions, and what normative principles inform their judgments? The Machinery of Government attempts to answer this question. The central challenge involves reconciling the tension between the traditional commitment to political neutrality on the part of the civil service with the fact that administrative discretion inevitably involves making normative judgments. State employees are in many cases unable to do their job effectively without some conception of where the public interest lies. It seems inevitable that this will conflict with the commitment to political neutrality, since this conception of the public interest may be tension with that of elected officials. The solution to the dilemma lies in an understanding of the constraints that liberalism imposes upon popular sovereignty in a liberal-democratic polity. Not only do courts play an important role in checking the power of democratic publics, the executive branch is also the custodian of certain fundamental liberal principles"--