gaining weight; and the station to which cabinets finally attained was a station of diminished and diminishing power. There is no distincter tendency in congressional history than the tendency to subject even the details of administration to the constant supervision, and all policy to the watchful intervention, of the Standing Committees.
I am inclined to think, therefore, that the enlarged powers of Congress are the fruits rather of an immensely increased efficiency of organization, and of the redoubled activity consequent upon the facility of action secured by such organization, than of any definite and persistent scheme of conscious usurpation. It is safe to say that Congress always had the desire to have a hand in every affair of federal government; but it was only by degrees that it found means and opportunity to gratify that desire, and its activity, extending its bounds wherever perfected processes of congressional work offered favoring prospects, has been enlarged so naturally and so silently that it has almost always seemed of normal extent, and has never, except perhaps during one or two brief periods of extraordinary political disturbance, appeared to reach much beyond its acknowledged constitutional sphere.
It is only in the exercise of those functions of public and formal consultation and coöperation
