The Two Agencies 105 



and scattered forces of the open country, and 

 for the more or less separate functions of state 

 and federal governments. We first observe 

 that these forces are of very many kinds. 

 They constitute one public question only as 

 they affect persons following a series of land- 

 occupations; but the same forces may equally 

 affect other persons. These agencies are of 

 two great groups: Those that are educa- 

 tional'; those that are regulatory or govern- 

 mental. It is not necessary for purposes of 

 administration that the assembling of all these 

 rural agencies be centered in one bureau. On 

 the other hand, there is distinct reason why 

 they should not be so centered, in the fact 

 that agricultural forces are of right not iso- 

 lated forces. Since many of them are broadly 

 human, some of their significance is lost when 

 we attempt to segregate them. 



As real cooperative work crystallizes, the fed- 

 eral departments will have less need of main- 

 taining independent relations with individual 

 farmers in the states. They will deal with 

 broader questions of policy and procedure as 



