There has been significant scholarly research on judicial decision making and bureaucratic control but little research on bureaucrats who perform a judicial function, namely, administrative law judges. In this article, we analyze the influences on the decisions of administrative law judges (ALJs) from 1991 to 2006. Using ordered logit, we examine the influence of policy preference and hierarchical and political constraint. We find that ALJs are comparable to Federal District Court judges in that they use ideology in their rulings, are also subject to hierarchical control by higher courts, and that they are constrained by separation of powers influences.

While research on the influence of divided government upon legislative outputs is available, relatively little identifies the effects of divided government on legislative control of bureaucratic discretion. Some suggest that inter-branch conflict between the President and Congress leads legislators to seek to retain legislative control over the bureaucracy. As a result, periods of divided government increase statutory control and reduce agency autonomy. Close examination of statutes creating each federal agency between 1946 and 1997 reveal that divided government increases specificity of statutory control. In addition, the particular type of divided government involving split partisan control between the chambers of Congress fosters greater specific statutory control when new government agencies are created.

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Regulation of the environment is often characterized as a polarizing issue that pits public health against economic growth. Although researchers have examined the decisions of federal district court judges in environmental civil penalty cases and examined the decision making of administrative law judges (ALJ), there has been no research which has examined factors that influence ALJ decision making in environmental civil penalty cases at the Environmental Protection Agency (EPA). I theorize that ALJ decisions, like federal district court judge decisions, are a function of personal policy preferences, hierarchical controls by higher courts, separation of powers influences, and case and defendant characteristics. Results demonstrate that the size of civil penalties issued by ALJs at the EPA is influenced by personal policy preferences, political constraints via Congress, hierarchical control by the Environmental Appeals Board (EAB) and the Supreme Court, litigant characteristics, and case characteristics. Overall, EPA ALJs seem to put more emphasis on their role as judge than their role as bureaucrat. The influence of attitudes raises normative concerns regarding the level of independence that is provided to ALJs as the weighing of public health versus economic growth seems to be based in personal policy preferences rather than technical expertise.

Scholars have long been simultaneously concerned with the factors that influence appellate court decision making and the level of deference that the courts allow for agencies. However, scholars have treated administrative agencies as unitary actors with a single level of decision making, but in reality agency decisions involve input from multiple actors within the agency. I argue that appellate courts rely more heavily on decisions made by actors in the bureaucracy with greater levels of expertise and who are less politically motivated as cues in their decision making. This theory is bolstered by legal precedent in the area of administrative law that suggests courts should more heavily rely on the expert judgment of administrative judges. Thus, as a result of their increased expertise, appearance of political neutrality, and institutional support, courts will be more reliant on decisions issued by administrative law judges (ALJs) than those issued by the political appointees as cues in their decision making. Using over 300 unfair labor practice decisions issued by the federal appeals courts on review of cases from the National Labor Relations Board (NLRB or Board), I develop a model of appeals court decision making in unfair labor practice cases as a function of the initial decision of the ALJ, the final order of the political appointees of the NLRB, case characteristics, the ideology of the deciding appeals court panel, Supreme Court influence, and economic factors. Though the ideology of the court plays a role in its decision making, cues from ALJ decision making and that of the Board weigh more heavily in appellate court outcomes. However, cues from ALJ decisions play the most consistent role in appellate court decision making, even in more difficult cases. This has important implications for agency strategy in courts and suggests that future research should consider the influence of lower‐level decision making over appellate court decision making in the area of administrative law.