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What did Applebly mean when he said, "government... requires in its highest officials a special competence in handling relationships"?

What did Applebly mean when he said, "government... requires in its highest officials a special competence in handling relationships"?
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Other Subjects-8088803.doc

Paul H Appleby was an American expert who understands the problems in
organisations and management of central government and an institute of public
administration. He submitted his recommendations...

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