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| Preface | |
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| Introduction to Policymaking in the Bureaucracy | |
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| The Surprising Reach of Administrative Policymaking | |
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| Smoking and Health: How an Issue Mutates over Time | |
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| Diluted Response to the Impact of Smoking: Why? | |
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| Bureaucracy Centered Policymaking | |
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| Notes | |
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| The Grip of Tobacco Interests on Policymaking | |
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| The Prohibition Era: A Short-Lived, State-Level Phenomenon | |
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| Science Uncovers a Larger Health Hazard | |
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| Congress Rebuffs Health Proponents | |
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| Birth of a Powerful, Seemingly Invincible Lobby | |
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| The Tobacco Policy Subsystem | |
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| The Transformation of Tobacco Politics: The Collapse of a Policy Monopoly | |
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| Beyond the Subsystem: Tobacco Interests and Their Allies | |
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| The Schizophrenia of Business toward Government Regulation | |
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| Notes | |
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| Smoking and Health Move to the Public Agenda: The Surgeon General Reports and the FTC Acts | |
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| Regulation on the Basis of False Advertising | |
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| Where Do Issues Come From? Where Do They Go? Why? | |
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| A Challenge to the Old Subsystem | |
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| A Bureaucracy Divided: The Government Does Not Speak with One Voice | |
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| An Advisory Committee Sets a New Policy Direction in Motion | |
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| Support for a Health Warning: Serendipity and Allies | |
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| Advisory Committees as Legitimizing Agents: The Importance of Neutral Expertise | |
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| Impact of the Advisory Committee's Report: Staging and Content | |
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| Bureaucrats and Members of Congress: A System of Mutual Dependencies | |
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| Notes | |
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| The Legal Basis of Bureaucracy Centered Policymaking | |
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| Congressional Delegation of Authority | |
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| Regulatory Authority Delegated to the FTC | |
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| The Supreme Court on Delegation | |
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| Change in Emphasis at the FTC | |
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| Notes | |
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| Effective Enforcement and Strategies to Combat It: Procedures Used in Administrative Policymaking | |
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| Adjudication and Rule Making at the Federal Trade Commission | |
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| The FTC's Experience with Cigarette Regulation | |
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| The FTC Adopts Rule-Making Procedures | |
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| The Rule-Making Hearings | |
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| Cigarette Hearings at the FTC | |
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| Witnesses | |
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| Industry Strategy: Challenge the Authority, Not the Merits | |
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| The Commissioners Respond | |
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| The FTC's Defense of Its Action | |
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| Promulgation of Rules | |
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| Expanding Delegation and Diminishing Accountability | |
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| Tobacco Interests Object to the Rule | |
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| Notes | |
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| Congressional Power and Agency Policymaking | |
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| Congressional Oversight | |
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| The Federal Trade Commission's Oversight Struggle | |
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| No Victory for Health | |
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| Strategy for Success | |
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| The Health Lobby | |
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| The Congressional Hearings | |
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| The Cigarette Industry Testifies | |
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| The FTC Rescinds Its Rule | |
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| Notes | |
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| The Bureaucracy, Congress, and the President: Balancing Acts | |
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| The FCC Enters the Fray | |
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| The FCC Intensifies the Battle | |
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| Fitful Progress: The Efforts of a Persistent FTC | |
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| Keeping the Pressure On: The Politics of Information | |
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| The Surgeon General: Information, Not Regulation | |
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| The Industry Fights Back: Politics Turns Information on Its Head | |
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| The Role of the President | |
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| Big Tobacco under Siege: Multiple Venues | |
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| Notes | |
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| The Courts Move into the Spotlight | |
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| A New Era in Tobacco Litigation | |
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| New Private Litigation: The Castano Case | |
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| The Whistle-Blowers | |
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| The First Settlement: Liggett & Myers Breaks Ranks | |
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| Pressure Mounts for Global Settlement | |
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| Developments in Wake of the MSA | |
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| Notes | |
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| Policy Entrepreneurship in the Bureaucracy and Beyond | |
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| Getting the President on Board | |
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| Kessler Presses On | |
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| Combined Impact of 1998 Master Settlement Agreement and Kessler | |
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| The Interaction of Markets and Politics | |
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| Bureaucrats' Network: The Health Community Goes International | |
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| Notes | |
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| Bureaucracy Centered Policymaking in a Democracy | |
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| Bureaucrats Have Too Much Power | |
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| External Checks on Bureaucratic Autonomy | |
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| Administrative Procedure Act: Legislative and Judicial Authority of Agencies | |
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| Administrative Law Judges | |
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| Written Records | |
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| Advisory Committees | |
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| Accessibility | |
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| The Policymaking Role of Bureaucracies Reconsidered | |
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| Notes | |
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| Index | |