To conduct of government business... [is similar to the] conduct of the affairs of any other social organization, commercial, philanthropic, religiou… - Leonard D. White

As a nation we are, however, slowly accepting the fact that the loose-jointed, easy-going, somewhat irresponsible system of administration which we carried over from our rural, agricultural background is no longer adequate for present and future needs.

One foundation for the future of American democracy is a sound administrative system, able to discharge with competence and integrity the tasks laid upon it by the people. The present system is far in advance of that which sufficed in 1925, but its improvement has no more than kept pace with the added responsibilities heaped upon it.

[ Lawyers are clear. On the one hand, they are important and deserve] special consideration [because they] are always found at the right hand of the administrator whose actions must be legally defensible. A lawyer, therefore, sits close to the seat of administrative authority... Policy may have to yield to constitutionality, and the lawyers prescribe. On the other hand, it must be said that the training of the lawyer, based on precedent, and looking backward rather than forward for guidance, is not a training which is suited to make an ideal administrator.