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HE process of change in complex social organizations is itself a highly complex phenomenon, and governmental agencies are not exempt from this general rule. Presidents and administrators may come and go, but the civil service-with its inherited policies, attitudes, and biases-is with us always.' Moreover, the process by which governmental decision makers gather information, consider alternatives, and balance conflicting values may have characteristics that are highly persistent over time. While it is desirable to overcome unnecessary bureaucratic rigidities, any attempt to improve this decision-making process must take into account some important practical limitations. The National Environmental Policy Act of 1969 (NEPA)2 provides a relatively successful case study of the possibilities, methods, and limitations on the process of change as applied to agencies of the federal government. NEPA was intended to make federal agencies more responsive to environmental considerations and values, which had been too frequently neglected in governmental decision-making. In the short time since its enactment, the Act has produced, in addition to a number of judicial victories that have been celebrated by

On Leading a Horse to Water: NEPA and the Federal Bureaucracy