Effectively linking theory to practice has long been perceived as a challenging objective of the field of public administration, despite important research advances in the field. 1 Indeed, this conundrum contributed to the establishment of the American Society for Public Administration in 1939 (Lee, 2015). Ever since, the question of why public administration seems unable to develop a more substantial and satisfactory theoretical, explanatory, and practical body of knowledge runs through much of the field's literature (Dubnick, 1999). Diverse "answers," all partial at best, have been offered. Perhaps expectations have been inappropriate for a complex field (Rutgers, 2010). Public administration is management, politics and policy, law, government, governance, "orthodox," "reinvented," hierarchical, collaborative, bureaucratic, post-bureaucratic, new public management (NPM), post-NPM, art, science, profession, craft, service, regulation, and undoubtedly much else. It also embraces a mix of normative values, impeding theory-building on empirical grounds and practical advice. As James Q. Wilson observed in 1967, these value premises include accountability (control), equity (procedural fairness), efficiency, responsiveness, and fiscal integrity. More recently, in 2015, Naomi Aoki's encapsulation of the "so-called Good Governance Model" adds to these values representativeness, transparency, and respect for the rule of law. Even broader inventories of "public values" are provided by Torben Jørgensen and Barry Bozeman (2007) and Zeger van der Wal, Tina Nabatchi, and Gjalt de Graaf (2015). However, not only do many public administrative values and their conceptual referents lack sufficient clarity for standard operationalization as sought by Herbert Simon (1946, 1947b), they are potentially incompatible with one another (as explained by the abovementioned authors) and must be balanced or traded-off together in practice. As Robert Dahl (1947) observed, they also are normative and context dependent. 2 Alternatively, others argue that the "big questions" in public administration are so big that the field's collective knowledge base is too limited (Behn, 1995; Kirlin, 1996). Still others argue that, regardless of the size of the questions asked, the problem lies in the field's valorization of the scientific method (Adams, 1992; Luton, 2007). They contend that a methodology grounded in the natural sciences is not appropriate for explaining and predicting complex individual and organizational behaviors. These critics also find the idea of "independent" variables misguided in a world of practice where administrative dynamics are largely multi-causal and interdependent rather than uni-causal. Relatedly, they view the fact-value dichotomy (Simon, 1947a)