ABSTRACT
Connections between ends and means in public policy making are made through analysis, bargaining, learning, or interpretation. Finance influences the way the connections are made because every policy depends on money. Money is scarce. Necessity forces the question: Is the activity worth the money? Need establishes finance as the ultimate contingency and leads policy makers to depend on finance officials for expertise and practical advice, leading finance officials to encourage analysis, bargaining, learning, or interpretation.
