Politics and Administration in Intergovernmental Relations

• DOI: 10.1177/000271624020700102
• Date: 01 January 1940
• Author: G. Homer Durham
• Published date: 01 January 1940
• Subject Matter: Articles

Politics and Administration in Intergovernmental
Relations
By G. HOMER DURHAM
THE rise of a new American fed- panding nation, the administrator has
eralism has been seen in recent
come to have dominating influence in the
Federal-state co-operation.’
This is
American political scene. Presidents,
but a single, though commanding, aspect
governors, and lesser executives have
of intergovernmental relations in the
long received attention, even in that as-
United States where today one worker
pect of public affairs which brings them
in every nine holds a public position
into intergovernmental activity.
But
within the 175,000-odd units embraced
universities and colleges, and to a
in our system. The relationships pos-
greater extent the public schools, have
sible among such personnel, distributed
been slow in presenting the place of such
through so many areas and groups, are
activities in the political proceSS.3 In
practically unending in their number;
general, the American public, including
complexity, and variety.
many of those in active political life,
Outside of the work of a few pioneer-
prefer to view the scene in terms of tra-
ing scholars, little is known of this de-
ditional thinking about American gov-
velopment and the interlocking of these
ernment ; namely, the states perform cer-
many units. The legal devices of Fed-
tain functions reserved to them, the
eral and state aid have been generally
Federal Government performs certain
recognized as important factors in forg-
others; both, and the localities, take
ing such relations; as has the compact,
too much for taxes; and the Supreme
the administrative or legislative agree-
Court will straighten out everything for
ment, and the contract. Such inventions
the good of mankind. Career politics
have served to bridge the gap between
has been looked upon as a necessary
various agencies, but form only another
evil.
The administration of policy,
phase of the problem. Professor Wil-
fathered by such &dquo;evil,&dquo; has been
liam Anderson points out:
thought of as an automatic result of
acts of Congress and local
If
legislation.
we think only in terms of constitu-
The
tionalism and strict legality,
growing maze of relationships, le-
we shall miss
some of the most important functions ...
gal and extra-legal, within the federal
in understanding the working relations
system has radically altered any ancient
among governmental units. The problem
bases-in-fact for such views, and today
is essentially a human and not a legal one .2
affords particular challenges to the in-
terests of regions and localities, to the
STRUCTURE AND FUNCTION AND THE
nature of our federalism, and to the
PROBLEM OF &dquo;CONSENT&dquo;
intelligent citizen’s effort to understand
As
the
intergovernmental functions have
nature and control of his govern-
increased
ment.
to meet the demands of an ex-
Writing in THE ANNALS in 1933,
1
Jane P. Clark, The Rise of a New Fed-
eralism; Federal-State Co-operation in the
3
In five important college textbooks on
United States, New York: Columbia Univer-
American Government produced since 1938,
sity Press, 1938.
only one makes systematic effort to analyze
2
American Government (New York: Henry
this problem and two make no significant
Holt and Co., 1938), p. 275.
mention of it whatever.
1



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2
Luther H. Gulick 4 forecast the need of
agencies co-operate or otherwise come
a new theory of what he there called
into association. Each brings to the as-
&dquo;division of powers&dquo;; not to be made up
sociation its own legislative background,
of checks and balances, nor yet as be-
rule-making power, and political and ad-
tween policy and administration; but to
ministrative controls.
Such relations
be concerned &dquo;with the division between
tend to obscure from the citizen the es-
policy veto on one side and policy plan-
sential knowledge requisite to an intelli-
ning and execution on the other.&dquo; 5 A
gent &dquo;consent,&dquo; and they also absorb the
moment’s thought will show that the
traditional outlets for expressing policy,
usual agencies of government classified
with the result that the personal rela-
as courts, legislatures, elected executives,
tionships between administrators become
the administration, and such devices as
paramount. Thus, whereas we formerly
the initiative, may one and all affect
had administration by campaigning of-
both the veto of public policy and its
fice-seekers and their allies, today we
planning and execution. So, for many
have policy-making by administrators
reasons, a discussion of &dquo;politics&dquo; and
and the molding of a new American poli-
&dquo;administration&dquo; in intergovernmental
tics.
affairs may well recognize the basic one-
Such a situation imposes a serious
ness of the two in the political process,
problem on the befuddled citizen who,
but likewise fall back on the advantages
in paying lip service to his ideal of a
of differentiating them for the time be-
mechanical, liberal...