From the Preface: The first purpose of this study ... is to present an historical view of the evolution of public service bureaucracies as political institutions over the past three or four decades. While our historical analysis builds on existing literature, in three areas this literature proved inadequate .... The three are:
. the emergence of a cluster of public service organizations which we refer to as the "control" bureaucracy, or, in the context of the historical typology presented in the introduction, simply as Public Service Bureacuracy III.
. the increasing degree to which public service bureaucracy has been treated as the object of public policy in such a way as to strain its capacity to carry out its basic function of implementing policy; and
. the role of political parties as insitutions with primary and fundamental responsibilities in the democratic control of the public service.
Chapter three provides a quantitative mapping of employment in the bureaucracy so that one gains a sense of what has grown, what is in or out of control, and most important, what distinctions must be made between the growth of officialdom as such and that of government and programs. Pp. XV to XVII.