Bureaus are among the most important institutions in every part of the world. Not only do they provide employment for a very significant fraction of the world's population, but they also make critical decisions that shape the economic, educational, political, social, moral, and even religious lives of nearly everyone on earth. This book develops a useful theory of bureaucratic decision making. The theory will enable analysts to predict at least some aspects of bureau behavior accurately, and to incorporate bureaus into a more generalized theory of social decision making — particularly one relevant to democracies. It would be impossible to solve all the problems involved in this immense and complex field; however, this book will solve many, and create a framework upon which solutions to still more may be built by other theorists.