| | TABLE OF CONTENTS: List of Illustrations ix
List of Tables xi
Acknowledgments xiii
Abbreviations xv
Introduction 1
One: Entrepreneurship, Networked Legitimacy, and Autonomy 14
Two: The Clerical State: Obstacles to Bureaucratic Autonomy
in Nineteenth-Century America 37
Three: The Railway Mail, Comstockery, and the Waning of the Old Postal Regime, 1862-94 65
Four: Organizational Renewal and Policy Innovation in the National Postal System, 1890-1910 94
Five: The Triumph of the Moral Economy: Finance, Parcels, and the Labor Dilemma in the Post Office, 1908-24 144
Six: Science in the Service of Seeds: The USDA, 1862-1900 179
Seven: From Seeds to Science: The USDA as University, 1897-1917 212
Eight: Multiple Networks and the Autonomy of Bureaus: Departures in Food, Pharmaceutical, and Forestry Policy, 1897-1913 255
Nine: Brokerage and Bureaucratic Policymaking: The Cementing of Autonomy at the USDA, 1914-28 290
Ten: Structure, Reputation, and the Bureaucratic Failure of Reclamation Policy, 1902-14 326
Conclusion: The Politics of Bureaucratic Autonomy 353
Notes 369
Archival Sources 459
Index 465
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