Central Assumption
Central to the concept of an iron triangle is the assumption that bureaucratic agencies, as political entities, seek to create and consolidate their own power base. In this view an agency's power is determined by its constituency, not by its consumers. (For these purposes, "constituents" are politically active members sharing a common interest or goal; consumers are the expected recipients of goods or services provided by a governmental bureaucracy and are often identified in an agency's written goals or mission statement.)
Much of what some see as bureaucratic dysfunction may be attributable to the alliances formed between the agency and its constituency. The official goals of an agency may appear to be thwarted or ignored altogether at the expense of the citizenry it is designed to serve.
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