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Costs and Benefits
through
Bureaucratic Anthony Boardman
Aidan Vining
Lenses: Example W. G. Waters, H
of a Highway
Project
Abstract
INTRODUCTION
1 The audience typically consists of middle to lower-senior level public sector employees-mostly
from Canadian provincial and federal governments, but also from municipal governments, crown
corporations (state-owned enterprises), and nonprofit organizations.
Journal of Policy Analysis and Management, Vol. 12, No. 3, 532-555 (1993)
C 1993 by the Association for Public Policy Analysis and Management
Published by John Wiley & Sons, Inc. CCC 0276-8739/93/030532-24
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Costs and Benefits through Bureaucratic Lenses / 533
they are Analysts, Spenders, or Guardians.2 These labels are indicative of the
perspective they bring to project evaluation in government. The Analysts'
perspective can be represented by standard CBA. Guardians and Spenders
have quite different lenses, which violate the microeconomic principles em-
bodied in CBA.
These differences in perspective have been most clearly revealed to us by
discussions and analysis in the seminar of a toll highway project that most
of the participants are familiar with. In this article we use a CBA of the
highway [Waters and Meyers, 1987] as the focal point for our characteriza-
tions, but also draw upon a CBA of Expo 86 [Blackorby et al., 1986] and other
examples.
The major point of this article is that bureaucratic role has a strong influ-
ence on what government employees think CBA is, and should be, about.
Most bureaucrats have not taken and will not take formal courses in CBA
analysis; therefore, they will go on believing that what they think is CBA
CBA. Even for those who have learned standard CBA, their views may change
toward those of Guardians or Spenders as a consequence of their daily bureau-
cratic roles and with time since their training. Their perceptions have im
portant impacts on policy outcomes.
Appreciation of these different perspectives leads to better understandi
of the "games" played by different bureaucrats-and where the othe
"players" are coming from. Furthermore, our analysis should help bureau
crats understand what are legitimate costs and benefits in a CBA, thus giving
Spenders confidence that Guardians will be less likely "to pull the wool ov
their eyes," and vice versa. More important, resultant policy outcomes ar
likely to be more consistent with the criterion of economic efficiency th
they would otherwise be.
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534 / Costs and Benefits through Bureaucratic Lenses
4 See also Migue and Belanger [1974], Lindsay [1976], Breton and Wintrobe [1982], and Mueller
[1989] on public bureaucrats. More generally, on managerial principal-agent problems, see
Williamson [1964], Leibenstein [1966], Baumol [1967], and Marris [1974].
s There is also a related literature on the practical use and applicability of social science research.
See, for example, Boardman and Horowitz [1978, p. 364] who distinguish between researchers
and practitioners who "face different constraints and different objectives and, in short, operate
within different frameworks and use different models."
6 For a clear example of distributional CBA see Long, Mallar, and Thornton [1981].
7 See Weimer and Vining [1992] for an extensive discussion of these variations.
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Costs and Benefits through Bureaucratic Lenses / 535
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536 / Costs and Benefits through Bureaucratic Lenses
Cariboo to Jasper,
and NorNh Edmonton
97
East
Cache Kamloops
North Creek I almon
97-5 Trans-Canada
1 P Phase II I
I
MerrVerno
9 PhasIII
Phase Phase ,Kelow
B lSu rland
N.Van. P Prin tn Penticton
ope 3
10 Va3 r 9 - Canada so o
Be I iU.S.A.
Bellingham
We should emphasize that this article is not intended to describe how this
specific CBA analysis became twisted out of shape. Indeed, there was no
Provincial CBA of the Coquihalla highway project. The Waters and Meyers
study was conducted independently. We use this example to demonstrate
how Guardians and Spenders typically treat benefits and costs when pre-
sented with a CBA, and how this differs from an Analyst's perspective.
This section presents the Analysts' perspective. Since the approach is well
known, we do not discuss it at length.8 But it is worth describing briefly some
8 For simplicity we will act as if all Analysts are advocates of economic efficiency. In fact, this
is an oversimplification. There are some policy analysts who have some general conception and
concern for "the greater good," but do not have a coherent tool kit. Only a subset of social
scientists have immediate sympathy for, and receptivity to, proper CBA techniques. Analysts
with humanities, planning, or social work backgrounds, for example, tend to align themselves
with Spenders, while those with business school background have a tendency to approach policy
alternatives from a revenue-expenditure perspective.
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Costs and Benefits through Bureaucratic Lenses / 537
A B C D
Global Provincial Global Provincial
perspective perspective perspective perspective
Project benefits:
Coquihalla traffic 389.8 29.3 290.4 217.8
Terminal value 53.3 53.3 53.3 53.3
Safety benefits 36.0 27.0 25.2 18.8
Traffic decongestion 14.6 10.9 9.4 7.1
Toll revenues - - - 37.4
Generated traffic 0.8 0.6 0.3 0.2
Project costs:
Construction 338.1 338.1 338.1 338.1
Maintenance 7.6 7.6 7.6 7.6
Toll collection - - 8.4 8.4
Toll booth construction - - 0.3 0.3
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538 / Costs and Benefits through Bureaucratic Lenses
few externalities and secondary impacts were explicitly included. Also, there
was no explicit consideration of environmental impacts, although some ex-
penditures to minimize environmental impacts were included in construction
costs. Leaving these impacts implicit at this point simplifies the CBA and
allows us to focus more quickly on the bureaucratic lens issues.
Two alternatives were analyzed-the highway with tolls and without. The
toll alternative assumed a toll charge of $8.00 for cars and $40.00 (maximum)
for trucks. Additionally, the alternatives were evaluated from two different
perspectives (or standing) [Whittingdon and MacCrae, 1986]. The global per-
spective included benefits and costs accruing to both residents of the province
and nonresident travelers, while the provincial perspective considered only
benefits and costs accruing to provincial residents. While these two different
regional perspectives technically are not alternatives, they can usefully be
treated as such for the purposes of this article. Therefore, we consider four
alternative projects, labeled A, B, C, and D. Table 1 summarizes the benefits
and costs in millions of 1986 dollars, utilizing a 7.5 percent real discount
rate for each of these four alternatives, relative to no project at all (the status
quo).
Several features of Table 1 are worth highlighting briefly. First, global net
social benefits are greater than provincial net social benefits because their
costs are the same but more people benefit under the global perspective.
Second, imposition of tolls decreases estimated net social benefits. Indeed,
from a provincial perspective, imposition of tolls generates a project with
negative net benefits (column D). The major reason for the finding of lower
net benefits is that tolls reduce demand for the highway, which reduces the
value of most of the benefits (time saved, the value of safety benefits, and the
value of decongestion on alternative highways).l0 Also, of course, toll booth
construction and collection raises costs. Third, toll revenues from out-of-
province residents count toward (gross) benefits only in column D. From a
global perspective, all toll revenues are merely transfers. Thus, the table
nicely illustrates the interaction between "standing" issues and transfer is-
sues. As we will see, bureaucrats are intensely aware of these issues, but see
them variously through their own particular "bureaucratic lens."
GUARDIANS
10 It is perhaps important to point out that congestion was not anticipated for many years. Of
course, if congestion were a problem, tolls could raise aggregate social welfare; see Boardman
and Lave [1977] for determination of the optimal congestion toll.
I This characterization of Guardians is similar to Friedman's [1977, p. 168] Welfare Department.
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Costs and Benefits through Bureaucratic Lenses / 539
Revenues ("benefits"):
Revenue from B.C. residents 0 112.1
Revenue from non-B.C. residents 0 37.4
0 149.5
Expenditures ("costs")
Construction, etc. 345.7 354.4
12 There is, however, some disagreement over whether existence value should be included in
CBA; see Rosenthal and Nelson [1992], and Kopp [1992].
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540 / Costs and Benefits through Bureaucratic Lenses
13 Some Guardians argue for a price higher than average cost on the grounds that, due to existing
long-term contracts, the distributor can sell some power to foreigners at this price, even though
they cannot sell any more power to the foreigner at that price.
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Costs and Benefits through Bureaucratic Lenses / 541
a good exists, they will want to use it; they resist using shadow prices to
correct for market failures. Also, they tend to under-weight externalities and
secondary impacts.
Finally, Guardians generally want to use a high discount rate. One reason
stems from their distrust of Spenders who, in their view, overestimate
benefits, underestimate costs, and generally use money less efficiently than
the private sector. Guardians know that using a high discount rate will make
it more difficult to justify most projects.'14 A second reason is that they want
to use a financial discount rate. They may not be aware of, or cannot relate
to, the concept of society's marginal rate of time preference. In any case, even
if they could understand this concept, their belief in markets would shift
them immediately to a financial discount rate. Guardians understand the
concepts of the opportunity cost of private investment and believe that at
the margin, government projects crowd out private investment or are funded
by issuing more provincial bonds to foreigners.iS In many jurisdictions,
Guardians set the discount rate. Both the Office of Management and the
Budget in the U.S. and the Treasury Board in Canada prescribe the use of
10% real interest rate for many applications of CBA.'6
SPENDERS
14 This is because in most projects advocated by Spenders, benefits and costs are reasonably
well matched, or costs occur early and benefits occur late.
15 For support for this position, see Lind [1990].
'6 For U.S. practices, see Lind [1990] and Lyon [1990]. For Canadian practices, see Jenkins [1973]
and Treasury Board, Canada [1976].
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542 / Costs and Benefits through Bureaucratic Lenses
Constituency "benefits":
Project costs (from CBA) 345.7 354.4
Project benefits (from CBA) 384.1 334.7
729.8 689.1
Constituency "costs":
Revenue from B.C. residents 112.1
7 See, for example, Niskanen [1971], and Migue and Belanger [1974]. For various reasons senior
spenders may be more interested in "budget shaping" rather than budget maximizing [see
Dunleavy, 1992]. They may, therefore, be willing to support projects that involve considerable
contracting out and other activities that are not budget maximizing per se.
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Costs and Benefits through Bureaucratic Lenses / 543
and success in these endeavors will lead to career advancement, larger bud-
gets, and all the trappings of the classic career-optimizing model. Thus,
Spenders can be characterized as partially corresponding to a derived constit-
uency-support model-a "pull-through" effect.
In general, as Robert Haveman [1976] and others have pointed out, politi-
cians prefer projects that concentrate benefits on particular interest groups,
and camouflage costs or diffuse them widely over the population. In practice,
politicians and Spenders weight each "impact category" by the strength of
the connection that constituents are expected to make between an impact
and the particular spending department. If the spending agency perceives
that it will receive no credit for expenditure on particular benefits, it will
tend to ignore them.'" Because people almost always notice expenditures on
themselves, such benefits are invariably treated as important and are heavily
weighted.19 Thus, for example, construction jobs are heavily weighted. The
net result is that for many projects, "expenditure benefits" are weighted more
strongly than "social benefits."
However, there are often major differences between the weights politicians
attach to interest groups and how Spenders weigh their constituents. To
politicians, geographic distribution tends to dominate because this is the
basic unit of analysis for elections.20 Thus, for example, Weingast, Shepsle,
and Johnsen [1981, p. 644] do not consider "programs targeted to the mal-
nourished (food stamps), the unhealthy (Medicare), the poor (welfare), the
retired (social security), the injured worker (workmen's compensation), or the
automobile driver (automotive product safety)" in their model of distributive
(pork-barrel) politics. In contrast, a Spender would treat such expenditures
on their constituents as benefits. Recipients of "entitlements" are constituents
of some specific department. Why? Organizational culture appears to matter.
Another, more mundane reason why Spenders and politicians focus on
inputs is because it is easier to identify, quantify (measure), predict, and
monetize (value) inputs than outputs. James Schlesinger [1968, pp. 285-286],
as an analyst, observed that although the orientation of analysis is toward
outputs, "in the real world of political decision it is immensely difficult to
concentrate on outputs rather than inputs." Later, as a Spender, he fell into
the same trap and attempted to justify proposed increases in defense spending
by comparing U.S. input levels with Soviet input levels [see Behn, 1981,
p. 207]. Of course, when outputs are hard to measure, cost-effectiveness analy-
sis is often used.
Spenders treat some inputs as neither benefits nor costs. In particular,
assets that are currently owned by the provincial government are simply
ignored. In support of the Tellico Dam, for example, the Tennessee Valley
Authority (TVA) argued that "since the farm land behind the dam had already
been purchased, the value of this land should be considered a sunk cost, even
18 This is not necessarily true of highway projects, because road users do tend to attribute
improvements in infrastructure to the providing Ministry.
19 Weingast, Shepsle, and Johnsen [1981, p. 648] refer to this phenomenon as the "Robert Moses
effect" after the "famous New Yorker who appreciated it and exploited it so effectively."
20 It is significant in this regard that in British Columbia, the Ministry of Transportation annual
reports show their expenditures by Electoral Districts rather than by projects or programs.
Munro [1975] analyzed highway expenditures among electroal districts and found that politics
is important in explaining the allocation of highway expenditures in British Columbia.
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544 / Costs and Benefits through Bureaucratic Lenses
though the land has yet to be flooded and could be resold as farm land if the
project was not completed" [Behn, 1981,p. 213, n. 27]. In the Coquihalla
highway example, Spenders do not include any cost for the land on which
the highway was built because it is already owned by the provincial govern-
ment and obtaining the land is not seen as part of the current project.21
Spenders treat the cost of assets already owned by the provincial government
and acquired independently of the project under evaluation in a way similar
to Guardians, although their reasons are different.
The foregoing discussion pertains to the use of government-owned assets
for what can reasonably be regarded as an additional, new project. Spenders
treat the cost of these assets as sunk. However, where expenditures have been
made to acquire assets that are an essential part of an ongoing project, they
may be treated quite differently. To Spenders, prior government expenditures
that are directly related to their current project are rarely sunk. Furthermore,
once initiated, Spenders will want to continue a project even though it should
be terminated on allocative efficiency grounds.
There are a number of reasons why Spenders do not treat past expenditures
on an ongoing project as sunk. The most important, direct reason is that
Spenders view such past expenditure as a sunk investment that provided
(and may continue to provide) marginal constituency benefits. For the same
reason, they believe completion of the project is worthwhile. Having made
the decision to proceed with the project in the first place on the grounds that
net constituency benefits are positive, they are unlikely to be deterred by
arguments by Analysts or Guardians about negative marginal financial or
social benefits. Spenders have heard these arguments before and find them
no more applicable when a project is underway than at the beginning when
the decision to proceed was made. In short, from a constituency-support
perspective, further expenditures are investments that will provide marginal
net constituency benefits, like the previous expenditures (investments). This
phenomenon has been demonstrated to us repeatedly in our seminar pro-
grams. Negative ex post information about real economic costs has negligible
impact on the support Spenders manifest for the Coquihalla highway, or
other provincial projects.
Spenders might also want to continue an existing project to satisfy personal
objectives. If their department has been committed to a project, they may
want it to continue because they do not want their department or themselves
personally to lose credibility, even if they believe it is not desirable for their
constituents or society in general.
Another set of reasons is indirect, stemming from the "pull-through" effect
by their politician-masters. There may be strong political support for continu-
ation of a venture even though it may not be justifiable on efficiency grounds.
Politicians do not treat sunk costs as sunk because the political net benefits
of completion are generally positive [Behn 1981, pp. 211-214]. The classic
example is the Tellico Dam in Tennessee where, even though it was 90 percent
completed, the social costs of completion still exceeded the social benefits
[Davis, 1988]. Nonetheless, Congress decided to complete the project. Why?
There are two main reasons. First, politicians may believe that the project
is beneficial in the sense that it is an investment which continues to buy
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Costs and Benefits through Bureaucratic Lenses / 545
23 Their funds and jobs are more secure because of reduced "contestability" in the market for
bureau funds [Gilbert, 1989].
24 They also think market outcomes are inequitable, but that is another issue.
25 One reason why some Spenders attach so much importance to multipliers is because they
have a basic grounding in input-output analysis and regional impact analysis, but they do not
clearly understand the fundamental distinction between economic and social impact analyses,
and evaluation studies [Waters, 1976].
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546 / Costs and Benefits through Bureaucratic Lenses
26 Spenders may not favor low discount rates in those circumstances where Analysts or Guardians
force spenders to treat costs as costs. Their view will depend on the timing of cost and benefit
flows. In the typical situation where costs occur early and benefits late, Spenders will still push
for a low discount rate. But with different timing of costs and benefits they may prefer a high
discount rate.
27 Here, multipliers refers to weights that should be used to adjust discount rates or particular
types of benefits and costs. Examples of multipliers are the shadow price of capital, the marginal
excess tax burden, and the shadow price of tax dollars. Further discussion of these points is
beyond the scope of this article.
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Costs and Benefits through Bureaucratic Lenses / 547
1. All three estimates only dealt with the highway proper and did not take
into account other works necessary to make the highway a complete
system. Associated costs such as land and engineering were not evalu-
ated .
2. The estimates prepared in 1973 and 1978 were very incomplete, espe-
cially in the evaluation of most probable costs. The estimates did not
take into proper consideration the quality of the information and the
relative risks. The direct costs were, for the most part, derived using
estimated quantities times unit rates. In order to establish the estimated
actual cost an estimated allowance for the unknown, in the form of a
contingency, was added to the direct costs. Unfortunately, it would
appear the contingency estimate lacked any proper evaluation and failed
to cover such a basic item as known historical growth of contracts.
3. Because there was no formal basis of preparing and recording estimates,
the comparison of the 1973 estimate with the 1978 estimate and the
estimate prepared in 1979 lacked any document trail to indicate how
the estimates were reevaluated and reconciled against one another. None
of the estimates indicated how the $250 million was derived. In fact,
other than public information releases, there is no record of an estimate
or any basis of rationale of an estimate accounting for the $250 million
figure .
4. There was no definitive scope statement associated with any of the
estimates. Without a scope statement there was no relevant basis for
comparison of actual costs to budget; i.e., comparison of the $250 million
to actual costs was not meaningful as the actual costs were not for the
same scope. To state it in simple, concise terms, what was estimated
was not what was built.29
28 The Commission of Inquiry did not have access to cabinet discussions. Since the Coquihalla
highway was of considerable importance to the government at the time, there is no doubt
highway officials were under immense pressure to expedite construction. It is not possible to
allocate blame for understatement between political and bureaucratic groups, but whichever
may have been the most important in this instance, the general point remains that those advocat-
ing particular projects in government have incentives to understate the costs.
29 Trimac Consulting Services Ltd., Report to the MacKay Commission, Appendix C of the
Commission Report, p. A9.
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548 / Costs and Benefits through Bureaucratic Lenses
The basis of the cost estimates for the second phase of the highway ($125
million) were virtually nonexistent.
Given the haphazard nature of the cost estimates, it is not surprising that
they had nothing to do with reality. As the MacKay Commission Report
[1987, Summary X] pointed out, "the discrepancy between estimates and
costs is heightened because estimates were never updated to reflect either
the additional costs of accelerated construction or the very large changes
in scope . . . [which] included higher design speeds, additional lanes and
interchanges." Additionally, the Ministry had a history of giving contractors
the benefit of the doubt, sometimes by huge orders of magnitude.30 For exam-
ple, although contracts were putatively tendered, the Ministry routinely cov-
ered cost overruns. Of course, it was often impossible to isolate the overrun
component because the Ministry was continuously altering its specifications
(perhaps not surprisingly, given that these specifications were not based on
analysis or research). The result was that only 60% of the total spent was
even covered by competitive bidding; the rest were essentially negotiated
contracts.
30 We do not take a normative position on the appropriate contract form. Thompson and Jones
[1986] discuss ex ante versus ex post contract control mechanisms.
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Costs and Benefits through Bureaucratic Lenses / 549
CBA benefits
Revenues (e.g., taxes, tolls) to provincial + + +
government from foreigners (people,
companies, or governments)
Revenues (e.g., matching grants) to +, unless + +
provincial government from "higher" (more there is an
aggregate) level of government (e.g., federal opportunity
government) cost
Revenues (e.g., economic profits, rents) to Include 0 +
provincially resident employers producer
surplus if
applicable
Pecuniary benefits (e.g., salaries) to Include 0 +
provincially resident employees (job producer
benefits) surplus if
unemployed
Nonpecuniary benefits to provincial + 0 +
residents (governments, companies, people)
Option benefits + 0 0
Existence value benefits + 0 0
Secondary benefits Include if 0 Use a
applicable multiplier
CAB costs
Project expenditures received by provincial Use +
residents (people, companies, or opportunity
governments) cost
Project expenditures received by foreigners -
Nonpecuniary costs to provincial residents - 0 -
(governments, companies, people)
Option loss - 0 0
Existence value loss - 0 0
Secondary costs Include if 0 0
applicable
Assets currently owned by provincial Include 0 0
government that are used by provincial opportunity
government cost
Assets currently owned by provincial Include Average cost 0
government that are used by other opportunity
provincial residents cost
Sunk ongoing project expenditures received Sunk cost Sunk cost Sunk
earlier by residents investment
CBA transfers
Revenue benefits (e.g., taxes, tolls) to 0 +
provincial government from provincial
residents (people or companies)
Pecuniary benefits to provincial government 0 + - if from a
from "lower" level of government (e.g., constituency,
municipality) otherwise 0
Other issues
Interest rates Not fully High; often Low
resolved 10% real
Private sector market efficiency (ignoring Generally
"traditional" market failures such as public efficient, but efficient inefficient,
goods, externalities, etc.) markets do fail much
unemployment
Ex ante view of future sunk expenditures Neutral; no Dislike Like
bias
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550 / Costs and Benefits through Bureaucratic Lenses
cal perspective. Spenders tend to ignore sunk costs or consider them advanta-
geous because they warrant further spending. Guardians and Analysts recog-
nize sunk costs.
The three lenses reflect different attitudes or beliefs about the functioning
of the private sector. Guardians tend to be confident about market perfor-
mance and pessimistic about expanding government spending. Spenders are
more convinced of the need for government spending to stimulate employ-
ment and to compensate for believed shortcomings of the private sector.
Analysts recognize the prospects for market failure but, subject to this, gener-
ally regard markets as efficient.
31 Indeed, there is a large literature on the inefficiency of state-owned enterprises [see, for exam-
ple, Vining and Boardman, 1992].
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Costs and Benefits through Bureaucratic Lenses / 551
is likely to make; they know the "tricks" and are less likely to have their
position defeated by an incorrect analytical perspective. Thus, they move
incrementally toward a more economically efficient outcome, which rein-
forces the point just made.
Analysts recognise that economic efficiency does not necessarily dominate
decisionmaking, and that consideration of revenue-expenditure and distribu-
tional criteria are necessary in government. Thus, they become more effective
at implementing the more allocatively efficient alternative: They move be-
yond being "partisan efficiency advocates" toward being "partisan efficiency
obtainers."
Of course, knowledge can be two-edged. We have also found that some
bureaucratic reaction to the "light" on CBA is strategic and asymmetric.32
Spenders focus on the fact that they can more strongly buttress their spending
arguments by more strongly emphasizing nonbudgetary benefits of projects,
such as avoided travel time or avoided fatalities. Guardians realize that they
can buttress their case by focusing more on the nonbudgetary costs of projects,
such as the opportunity cost of land or time. Thus, for example, if an "edu-
cated" Spender encounters a narrow-focused Guardian who is not moderately
familiar with economic efficiency arguments, the Spender may "snow" the
Guardian (and vice versa). Trying to avoid being on the receiving end of an
incorrect argument is, as we mentioned above, one reason why bureaucrats
come to our programs.
One major lesson for bureaucrats is that correct and accurate CBA analysis
is difficult to do. Some, including those in Crown Corporations, respond by
taking the view that their organization will never be able to do it correctly
and that their best solution is to hire external consultants whenever necessary.
The British Columbian Ministry of Highways has responded quite differently;
they have engaged upon a major task of training their managers in CBA. This
initiative has been in the planning stages for about two years, and the first
in-house classes have taken place. Their implementation experiences may
serve as a model for other branches of the provincial government and perhaps
to other government agencies in Canada and the U.S.
This article exemplifies the role of bureaucratic lenses in a specific CBA
context. However, our experience suggests that these lenses are endemic
in other, broader governmental decisionmaking contexts where CBA is not
explicitly present.
We end with a final note of caution. Our analysis identifies and analyzes
three bureaucratic roles. In our experience, bureaucrats naturally fall into our
archetypical roles when discussing an abstract project (that is, a completed
project which is no longer a bureaucratic issue) in an academic setting. In
actual practice we readily acknowledge that bureaucratic incentives and
beliefs can be more complex and idiosyncratic.
An earlier version of this article was presented at the Public Choice Society Meetings in New
Orleans, February 1992. We appreciate helpful suggestions from Murray Frank, Lee Friedman,
Ted Miller, Susan Smart, Bill Stanbury, Fred Thompson and two anonymous referees. The
authors would like to thank Betty Chung and Jean Last for valuable secretarial assistance.
32 On the strategic use of information by bureaucrats and politicians, see Austen-Smith [1990]
and Bender, Taylor, and Van Galen [1985].
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552 / Costs and Benefits through Bureaucratic Lenses
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