The legislature referees the group struggle, ratifies the victories of the successful coalitions, and records the terms of the surrenders, compromises, and conquests in the form of statues. Every statute tends to represent compromises because the process of accommodating conflicts of group interests is one of deliberation and consent. The legislative vote on any issue tends to represent the composition of strength, i.e., the balance of power, among the contending groups at the moment of voting... Administrative agencies of the regulatory kind are established to carry out the terms of the treaties that the legislators have negotiated and ratified. The judiciary, like the civilian bureaucracy, is one of the instrumentality for the administration of the agreed rules.