Max Weber identified three ideal types of authority: traditional, charismatic, and rational-legal. Rational-legal authority forms the basis for bureaucracy because it relies on a belief in the legality of patterns of normative rules and the right of those elevated to authority under such rules to issue commands. Political appointees face challenges in accomplishing their duties because they have limited time in office and must balance competing interests. Communication can be blocked by noise, filtering, and overload which impact the reception of a message. Public budgets differ from household or business budgets because they involve many stakeholders with different priorities and are subject to more public scrutiny and political pressures.