Includes bibliographical references and index.

The definition of rulemaking -- The history of rulemaking -- Categories of rules -- The reasons for rulemaking : what it has to offer -- Process and substance -- The core elements of rulemaking : information, participation, accountability -- Information : increased legal requirements -- Participation : expanded opportunities mandated by law -- Mechanisms of accountability -- How the APA model has changed -- Exceptions, exemptions, and evasions -- The stages of rulemaking -- The volume of rulemaking -- Quality in rulemaking -- Timeliness -- Participation -- Bureaucratic discretion -- The effects of rulemaking -- Inseparable issues -- Presidential management -- Management on the agency level -- Managing individual rules -- Conclusion -- The purposes of participation -- The origins and history of participation -- Actual patterns of participation -- Does participation matter? -- Accountability and Congress -- Accountability to the President -- Accountability to the courts -- Conclusion -- The value of theory -- The elements of rulemaking theory -- Who will win? -- The importance of negotiation.