We hold that efficiency cannot itself be a "value." Rather, it operates in the interstices of a value system; it prescribes relationships (ratios or proportions) among parts of the value system; it receives its "moral content" by syntax, by absorption. Things are not simply "efficient" or "inefficient." They are efficient or inefficient for given purposes, and efficiency for one purpose may mean inefficiency for another.

p. 202 - The Administrative State, 1948