Acknowledgments 1: The "Problem of Bureaucracy" 2: Replacing Political Patronage with Merit: The Roles of the President and the Congress in the Origins of the Federal Civil Service System 3: The Continuing Political Conflict over Control of Federal Employees and the Requirement for Further Institutional Change 4: The Rise of Federal Employees as an Interest Group: The Early Years 5: The Maturation of Federal Employees as an Interest Group 6: Explaining the Success of Federal Employees as an Interest Group 7: The Implications of a Protected Bureaucracy 8: The Economics and Politics of Institutional Change in the Political Arena Appendix A: Appendix to Chapter 2 Appendix B: Appendix to Chapter 3 Appendix C: Appendix to Chapter 5 Appendix D: Appendix to Chapter 6 References Index.