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“While it would be silly and ungracious to insist that intelligent deliberation on public issues is nowhere found in modern communities, it would be naive to imagine that wise deliberation can survive the constant pounding from self-interested political behavior. Benevolence in public institutions has a short half-life no matter how noble its original intentions." and "Once [a] program is in place, its day-to-day administration falls into the hands of a professional cadre besieged by powerful interest groups whose influence grows as public interest wanes. . . . A slow process of disintegration and reconfiguration sets in, transforming and expanding a program from within.”