Distinction between politics and administration as “the expression of the will of the state and the execution of that will.”

Frank J. Goodnow, (circa. 1890), in his book in part claimed a distinction between politics and administration as “the expression of the will of the state and the execution of that will.” In his later chapters, however, he differentiated the functions of administration. He thought that some functions should be subject to political control, whereas others should be free of politics; for example he concluded that certain kinds of offices should be politically appointed and removable, whereas others should be protected by civil service tenure.
What did Goodnow mean by “the expression of the will of the state and the execution of that will”?
Which aspect of criminal justice administrations should be under political control and what aspects should be free from politics, in your opinion? Explain and give examples.
Discussions: Expected word count in Initial post is 250 words; for reply posts, 100 words are expected. I expect perfect APA technique. The minimum requirement is three (3) scholarly sources with at least one (1) source a peer reviewed article published in the last 7 years