There are doubtless a number of certifiable monopolies, but far more agencies must meet the challenge of rivals inside the machinery of government standing ready to take over their function and perhaps engaged in deliberate campaigns to do so. Although the organizational ideal of many management analysts is an administrative structure free of ambiguities of mission, jurisdiction, and authority, and although intermittent progress has been made toward that ideal since the president’s Committee on Administrative Management decried the unplanned character of the federal administrative establishment, overlapping and duplication the familiar twin bogeymen of efficiency experts still flourish in the government. The government remains a patchwork in many ways