through their superiors.  Policy making is Chief Executive  
responsibility. If there is no policy there can be no cooperation--  
and usually no success.
 
     
 
 
Administrative subordinates cannot and should not make   
policy, but subordinates who do not know policy cannot meet with   
dignity or with safety for themselves or for the Department the   
competition of Clever and informed opponents. A business with no   
policy uniformly fails in the end.
 
     
 
 
It is obvious that the higher officers of the Department  
are overloaded with work. It is also obvious that their  
fields of authority are not clearly defined; thus their  
responsibilities are not fairly determined.
 
     
 
 
II. The unusual burdens imposed on the Department by the  
War necessitate a survey within the Department, to determine whether   
the same Assistants who carry the burden of No. I  
(i.e., "Current and customary diplomatic affairs") can with  
reasonable effort and with efficiency carry this day-to-day  
burden as well as No. II ("Current diplomatic affairs re-  
lated to the War").