Dubnick, Mel, Alan R. Gitelson, and Eric Anderson. “The Federal Tool Box: Administrative Craftsmanship in Intergovernmental Regulation.” Paper presented at the Annual Meeting of the American Political Science Association, September 3–6, 1981, New York City
AI-Generated Summary:
This paper examines the administrative instruments — the “tool box” — available to federal agencies in implementing intergovernmental regulatory programs. The paper develops a framework for understanding administrative craftsmanship in intergovernmental regulation, focusing on how federal officials select, design, and deploy regulatory tools in response to the coordination challenges inherent in a federal system. The analysis draws on cases of intergovernmental regulatory implementation to assess the effectiveness of alternative administrative approaches.
Dismal Outlook on Intergovernmental Relations
- The study of IGR has historically been pessimistic about the system’s future and effectiveness.
- Most analyses highlight systemic failures, fragmentation, and the difficulty of reforming federal relations.
- Two main schools of thought focus on policy implementation failures and legal relationship changes.
- Both perspectives agree that the outlook for IGR is generally gloomy.
Policy Implementation Challenges
- IGR often hampers effective policy execution due to fragmentation and mutual interference.
- Studies like Pressman and Wildavsky’s show low success rates even in favorable conditions.
- Federalism constraints make it difficult for state and local actors to oppose federal initiatives.
- Policy fragmentation and mutual ignorance hinder the success of intergovernmental programs.
- Policymakers and implementers must adapt to federalism realities, though success remains unlikely.
Legal Relationship Shifts Toward Centralization
- There is a trend toward increased national control and dependence of subnational units.
- This shift results from historical movements, including Great Society and New Federalism programs.
- Federal involvement expanded from supportive roles to direct intervention and regulation.
- State and local governments face declining constitutional standing but increased policy implementation roles.
- The trend toward a more unitary system is rooted in developmental and ideological factors.
The System as a Federal Toolbox
- IGR can be viewed as a toolbox of tools and instruments used by actors at various levels.
- Federal agencies possess diverse tools derived from statutes, regulations, and technical expertise.
- Subnational officials have fewer powerful tools but can leverage available resources for influence.
- Local officials can sometimes delay or block federal projects using federal regulations.
- The toolbox metaphor highlights the importance of strategic tool use by policymakers.
Case Studies of Federal Tool Use
- Examples include delaying highway projects through environmental and historic preservation laws.
- Local communities successfully used federal regulations to oppose federally funded projects.
- State agencies have used stricter standards to influence or hinder national energy and environmental policies.
- These cases demonstrate the strategic use of federal tools to shape or block policy implementation.
- Subnational actors can effectively influence federal projects despite systemic power imbalances.