50 THE UNITED STATES DEPARTMENT OF AGRICULTURE 



trative policy of the Department of Agriculture to assign 

 each activity to that subdivision which, all things considered, 

 seems best fitted to perform it effectively. When the ac- 

 tivity in question is related to the work of two or more 

 administrative units, efTort is made to avoid friction and 

 duplication by close cooperation between the subdivisions 

 involved. 



No attempt will be made to trace the numerous forms 

 which such cooperation may take. It may be very formal, 

 based upon a written agreement which stipulates the duties 

 to be performed and the expenditures to be made by each 

 unit; it may be informal, based upon a verbal agreement or 

 understanding ; or it may be merely the common use of cer- 

 tain facilities or materials. In the main, these internal co- 

 operative efforts have accomplished the desired ends. 



When Congress assumes the task, as it commonly does in 

 larger matters, and frequently does even in detail, of not 

 only creating the administrative machinery, but also assign- 

 ing the tasks which each unit shall perform; that body is 

 confronted with essentially the same problems as confront 

 the administrator when these questions are not prede- 

 termined for him. That Congress has not always fully 

 appreciated the nature of its task is shown by the incongrui- 

 ties which have existed, and which to some extent still exist, 

 in the work of the executive departments. The existence 

 of these anomalies is largely attributable to the more rapid 

 growth of governmental activities than of governmental 

 machinery or organization. The reluctance of Congress to 

 create additional executive departments has resulted not 

 only in the overtaxing of department heads, but also in the 

 bringing together, in some instances, of many totally un- 

 related functions. In recent years an outlet has been found 

 in the creation of numerous independent boards and com- 

 missions. 



Another constantly recurring problem for the National 



forming a part of the present stiuiy. For a discussion of this ques- 

 tion, sec Goodnow, Principles of Administrative Law of the United 

 States, p. 90, and Frcund, Standards of American Legislation, p. 143. 



