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The major theme of Judge Henry Friendly’s perceptive book—based on the Oliver Wendell Holmes Lectures, Harvard, 1962—is the Federal administrative agencies’ failure to obtain definite standards for decisions. Developing this point, he examines aspects of the Interstate Commerce Act and the work of the NLRB. He analyzes the performance of communications and air transportation agencies—the FCC’s experience with broadcasting licenses and the CAB’s with competitive air route certificates; and, after discussing the role of the ICC, concludes with recommendations concerning the functions of the commissions, the Chief Executive, and the Congress.