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America's governing system is unique in the extent to which scientists and other outside experts participate in the policy process. No other nation has used these experts as extensively - not merely for advice on the allocation of resources to science but in broad policy issues. This wide-ranging study traces the rise of scientists in the policy process and shows how outside experts interrelate with politicians and administrators to produce a unique and dynamic policy process. It also shows how the very openness of American government creates the potential for unusual conflicts of interest.