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The 'congressional dominance' literature in political science provides valuable insights into the legislative control of administrative agencies. However, this literature tends to be conceptualized with respect to regulatory agencies, and it is not especially helpful in understanding the dynamics of policymaking in the provision of human services. After distinguishing the tasks of regulation and human services provision, we present an alternative: a common agency model of human service policy as the outcome of interest group bargaining. We illustrate its implications with an analytic narrative of service provision for the seriously mentally ill., The provision of human services--services that protect, maintain, or enhance the welfare or social functioning of individuals, families, and social groups--presents difficult political and management issues. Human service provision is [...]