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386 impossible without education. The better way is to introduce into the existing machinery, wherever you can find an opening, agencies that will hold up a mirror week by week, month by month. You can hope, then, to make the machine visible to those who work it, as well as to the chiefs who are responsible, and to the public outside. When the office-holders begin to see themselves,—or rather when the outsiders, the chiefs, and the subordinates all begin to see the same facts, the same damning facts if you like, the obstruction will diminish. The reformer's opinion that a certain bureau is inefficient is just his opinion, not so good an opinion in the eyes of the bureau, as its own. But let the work of that bureau be analysed and recorded, and then compared with other bureaus and with private corporations, and the argument moves to another plane.

There are ten departments at Washington represented in the Cabinet. Suppose, then, there was a permanent intelligence section for each. What would be some of the conditions of effectiveness? Beyond all others that the intelligence officials should be independent both of the Congressional Committees dealing with that department, and of the Secretary at the head of it; that they should not be entangled either in decision or in action. Independence, then, would turn mainly on three points: on funds, tenure, and access to the facts. For clearly if a particular Congress or departmental official can deprive them of money, dismiss them, or close the files, the staff becomes its creature.