R. Shep Melnick</b> is the Thomas P. O'Neill, Jr. Professor of American Politics at Boston College and co-chair of the Harvard Program on Constitutional Government. He is the author of two previous Brookings books that combine legal, political, and bureaucratic analysis: <i>Regulation and the Courts: The Case of the Clean Air Act</i> and <i>Between the Lines: Interpreting Welfare Rights</i>.</p></div>