Complete the account of the relationship.

Wilson proposed that politics decides what shall be done and administration decides how. Lipsky called front-line officials street-level bureaucrats and argued their coping routines become the policy. Niskanen modelled the official as a budget-maximiser, and Dunleavy replied that senior officials prefer small elite units close to ministers.

The four blanks trace the argument from its founding statement to its two modern challenges, one from the front line, showing that implementation is policy, and one from the top, showing that officials pursue interests but not the ones the standard model assumed.