State legislators introduce more than 100,000 bills per year and the resulting statutes that become law govern every aspect of life and business in those states. But who exactly writes these laws? In Ghostwriting Legislation, Mary Kroeger delves into the central and often-overlooked role that interest groups, think tanks, companies, and bureaucrats play in writing state law. While legislators are not expected to draft and pass legislation without the input of outside actors, Kroeger argues that a democratic defect may arise if elected officials must rely substantially on non-legislators to craft high-quality bills. Ghostwriting Legislation explores the disconnect between legislative power and legislative capacity, providing key data and insights for those who care about democracy and the separation-of-power dynamics in state legislatures.

‘In a data rich study Mary Kroeger offers a groundbreaking analysis of when, why, and how state legislators rely on outsiders to write laws. Bureaucrats and interest groups gladly offer bills to be introduced and work to get them passed. A survey experiment shows the public’s disapproval of this practice.’

Virginia Gray - University of North Carolina, Chapel Hill

‘Legislators write laws, which bureaucracies then implement – or so the standard story goes. In this smart, incisive analysis, Kroeger convincingly demonstrates that in fact bureaucrats, along with other ‘outsiders’ like interest groups, play a crucial role in the development and writing of laws. Every scholar of policymaking in the US should read this book!’

Charles R. Shipan - University of Michigan