The managers, in the governmental apparatus and in private enterprise, flourished while the capitalists lamented among themselves about “that man.” Congress, with occasional petty rebellions, sank lower and lower as sovereignty shifted from the parliament toward the bureaus and agencies. One after another, the executive bureaus took into their hands the attributes and functions of sovereignty; the bureaus became the de facto “law-makers.” By 1940, it was plain that Congress no longer possessed even the war-making power, the crux of sovereignty.
