- LETTERS PBB Incident: F. L. Halbert; Energy Conservation and gredibility:P. T. Thompson andJ. MacTavish; Swine Flu: Quantifying the "Possibility":F. Mosteller; Antiviral Agent: Abbott Tests: J. H. Biel; Moral PeriodicTable: D. H. Douglas-Hamilton . 1286

ENTORIAL More Laws, More Complexity ............................. 1291

ARTICLES The Shape ofthe Earth: D. King-Hele.The Arctlc Mirage and the Early North Atlantic: H. L. Sawatzky and W. H. Lehn.

Energy Conservation in New Housing Design: J. E. Snell, P. R. Achenbach,S. R. Petersen . . . . . . . . . . . . . . . . . . . . . . . . .

NEWS AND COMMENT Reactor Safety: Congress Hears Critics of Rasmussen Report .

GlomarExplorer: CIA's Salvage Ship a Giant Leap in Ocean Engineering

Currie Inquiry Puts Pentagon Research Job Under Cloud.

Nuclear Initiative: Californians Vote "No," but Legislature Acts.

Fusion Research (I): What Is the Program Buying the Country?.

Laser Spectroscopy: Illuminating the Dynamics ofCollisions.

Equity Theory, reviewedby B. R. Schlenker; Proteases and- Biolgical Control,B. Kassell; Films on Solid Sutfa$es,J. M. Bkikdy; NilearTracks in Solids,E. V. Benton; Books ReCeived .............

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Enhancement of Algal Growth and Productivity by Grazing Zooplankton:K. G. Porter...................................

Properties of the Background-Global Aerosol and Their Effects on Climate:G. E. Shaw....................................

Metamict Mineral Alteration: An Implication for Radioactive Waste Disposal:R.C.Ewing.................................

Tropomyosin.Binding to F-Actin Induced by Myosin Heads: B. L. Eaton.

Fertilization of Sea Urchins Needs Magnesium Ions in Seawater: K. Sanoand H.Mohri..................................

Bone Cells in Culture: Morphologic Transformation by Hormones: S. S. Miller,A.M. Wolf,C.D.Arnaud ..................... .......

Ribonucleotide Reductase in Blue-Green Algae: Dependence onAdenosylcobalamin: F. K. Gleason andJ. M. Wood..............

Aflatoxin Production by a Variant ofAspergillus oryzae (NRRL Strain 1988) onCowpeas (Vigna sinensis): N. El-Hag and R. E. Morse............

Trypanosomatid Flagellate in the Phloem ofDiseased Coconut Palms:M. V. Parthasarathy, W. G. van Slobbe, C. Soudant .

Leeuwenhoek's Observation of Bacteria: L. E. Casida, Jr. .

Ant-Aphid Association: Role of Aphid Alarm Pheromone: L. R. Nault,M. E. Montgomery, W. S. Bowers. . . . .. .. . . . . .. . . .

Lethal Interaction of Ubiquitous Insecticide Carriers with Virus:J. F. S. Crocker et al. . . . . . . . . . . . . . . . . . . . . . . . . .

Courtship Differences in Male Ring Doves: Avoidance of Cuckoldry?:C. J. Erickson and P. G. Zenone .................... ..

Stimulant-Related State-Dependent Learning in Hyperactive Children:J. M. Swanson and M. Kinsbourne . . . . . . . . ...

Analgesia Mediated by a Direct Spinal Action of Narcotics: T. L. Yaksh andT. A. Rudy .. . . . . . . .. .. . . .. . . . . . .. . . . .. . . .. . ..

Evolution on the Level of Communities: D. S. Wilson.

Technical Comment: Evaluation and Publication of Scanning Electron Micrographs:1. M. Clark and S. Glagov .

PRODUCTS ANDMATERIALS

Thermographic Color Display; Streak Camera; FlrMirrors; Polyacrylamide Gradient Gel; WafeMicroscope; Plastic Optical Components; Li

owmeters; Ultraviolet Laserr Scriber; Scanning Electroniterature ....... .. ... 1362.. .

Laser godynamic satellite, L oThe sateifte, whe acual diametetr isf2 feet h 426 o ors on it-terior Km fro t iatelite Sblt4 j.aid in the development of tehnm9for the p ivt of earthquiaesIMpa1293. [Goddard Space 'AltCte'r Nationi Aeromutic S; eSAdministration, Greenbelt, Mary

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25 June 1976, Volume 192, Number 4246

AMERICAN ASSOCIATION FORTHE ADVANCEMENT OF SCIENCEScience serves its readers as a forum for the pre-

sentation and 4isC ssion of important issues related tothe advancement§ts ience, including the presentationof minority or co fi'41ing points of view, rather than bypublishing only mat'tial on which a consensus has beenreached. Accordingly, all articles published in Science-including editorials, news and comment, and book re-views-are signed and reflect the individual views of theauthors and not official points of view adopted by theAAAS or the institutions with which the authors are affil-iated.

Editorial Board1976

ALFRED E. BROWN FRANK PRESSJAMES F. CROW FRANK W. PUTNAMHANS LANDSBERG MAXINE SINGEREDWARD NEY ARTHUR M. SQUIRES

1977WARD GOODENOUGH DONALD KENNEDYCLIFFORD GROBSTEIN NEAL E. MILLERH. S. GUTOWSKY RAYMOND H. THOMPSONN. BRUCE HANNAY

EdItor StaffEditor

PHILIP H. ABELSON

Publisher Business ManagerWILLIAM D. CAREY HANS NUSSBAUMManaging Editor: ROBERT V. ORMESAssistant Editors: ELLEN E. MURPHY, JOHN E.

RINGLEAssistant (o the Editors: RICHARD SEMIKLOSENews and Comment: JOHN WALSH, Editor; PHILIP M.

BOFFEY, LUTHER J. CARTER, BARBARA J. CULLITON,CONSTANCE HOLDEN, DEBORAH SHAPLEY, NICHOLASWADE. Editorial Assistant, SCHERRAINE MACKResearch News: ALLEN L. HAMMOND, WILLIAM D.

METZ, THOMAS H. MAUGH II, JEAN L. MARX, ARTHURL. ROBINSON, GINA BARI KOLATA, FANNIE GROOM

Book Reviews: KATHERINE LIVINGSTONE, LYNNMANFIELD, JANET KEGGCover Editor: GRAYCE FINGEREditorial Assistants: JOHN BAKER, ISABELLA BOUL-

DIN, MARGARET BURESCH, ELEANORE BUTZ, MARYDORFMAN, SYLVIA EBERHART, JUDITH GIVELBER,CAITILIN GORDON, CORRINE HARRIS, NANCY HART-NAGEL, OLIVER HEATWOLE, CHRISTINE KARLIK, MAR-GARET LLOYD, JEAN ROCKWOOD, LEAH RYAN, LoisSCHMITT, YA Li SWIGART, ELEANOR WARNERGuide to Scientific Instruments: RICHARD SOMMERMembership Recruitment: GWENDOLYN HUDDLE;

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Sales: NEW YORK, N.Y. 10036: Herbert L. Burklund, 11W. 42 St. (212-PE-6-1858); SCOTCH PLAINS, N.J. 07076:C. Richard Callis, 12 Unami Lane (201-889-4873); CHI-CAGO, ILL. 60611: Jack Ryan, Room 2107, 919 N. Mich-igan Ave. (312-DE-7-4973); BEVERLY HILLS, CALIF.90211: Winn Nance, 11 N. La Cienega Blvd. (213-657-2772); DORSET VT. 05251: Fred W. Dieffenbach, KentHill Rd. (802-867-5581)EDITORIAL CORRESPONDENCE: 1515 Massachu-setts Ave., NW, Washington, D.C. 20005. Phones:(Area Code 202) Central Office: 467-4350; Book Re-views: 467-4367; Business Office: 467-441 1; Circulation:467-4417; Guide to Scientific Instruments: 467-4480;News and Comment: 467-4430; Reprints and Per-missions: 467-4483; Research News: 467-4321; Review-ing: 467-4443. Cable: Advancesci, Washington. Copiesof "Instructions for Contributors" can be obtained fromthe editorial office. See also page xi, Science, 26 March1976. ADVERTISING CORRESPONDENCE: Room1740, 11 W. 42 St., New York, N.Y. 10036. Phone: 212-PE-6-1858.

-SCIENCE

More Laws, More ComplexityIn front of the Archives building in Washington, D.C., is an inscription,

"What is past is prologue." This is an especially appropriate motto for abuilding in a city dominated by lawyers. To them precedent is compelling.Laws once enacted are rarely repealed. The inexorable tendency is to builda more complex structure on the framework already existing.An example of long-term trends is the evolution of major federal health

laws. Since 1935, more than 100 such laws have been enacted. At thebeginning of the period the rate of enactment averaged between one and twoa year. The laws tended to be simple and brief. With time, this changed.

During the past decade the rate of enactment has increased markedly andthe laws tend to be lengthy and complex. A recent draft of a proposedNational Health Insurance Act is 200 pages long. The tendency towardcomplexity is exacerbated by the federal administrative agencies. For thepurpose of implementing legislation, the bureaucrats prepare regulationswhich often far exceed in complexity the legislation passed by Congress.

Individually, most of the laws have laudable goals. But in practice, theadministration of the laws never measures up to the good intentions ofCongress. Moreover, it is one thing to cope with a single law. It is another tocope with the cumulative effect of more than 100 laws with their oftenconflicting administrative regulations.

In Washington, as more bills are passed without cleaning out and reorga-nizing ones that came before, the complexity necessarily grows. Someexamples follow.

Subsidies for hospital construction involve different legislation from thatfor mental health clinics or neighborhood health centers. Provisions for theorganized or subsidized payment of medical bills for individuals are scat-tered among numerous programs geared to different population groups anddifferent diseases.Even before the many social programs initiated by the Kennedy and

Johnson administrations, there were federal or state health programs forveterans, servicemen, servicemen's dependents, Native Americans, mer-chant seamen, immigrants, and recipients of public assistance or of work-men's compensation benefits; and there were temporary disability in-surance, medical rehabilitation services, maternal and child care healthservices, and school health services.A number of factors combine to enhance the likelihood of further federal

actions. One is an organizational factor. Washington has increased itsmachinery for the generation of new legislation. It has become a factory forthe mass production of more complicated and more numerous laws.The relationship of Congress to the Administration has changed signifi-

cantly. In the past, Congress had few staff people who were technicalexperts and depended on the Executive agencies to provide information.But friction between President Nixon and the Democratic Congress led to asituation in which Congress found it necessary to have more experts on itsown staff. Today there are about 17,000 staff people on Capitol Hill,including 218 associated with committees engaged in medicine-relatedtopics. Staff members acquire influence by being useful to their patrons.Any ideas they, may have are placed at the disposal of the congressmen.The staff gets much of its feeling of satisfaction from its ability to manipulatebehind the scenes, to make things happen, and to create change.

While every politician professes to be a man for all seasons, he is oftenbest equipped for vote-getting. Many committees and subcommittees withspecial responsibilities in areas such as advanced technology or medicinehave not one member with training in the field. The professional staff aideson such committees consequently are in position to do the thinking, thehomework, and to a very large degree the decision-making. Today, thereexists in Washington a Fifth Estate, invisible but enjoying power derivedfrom preparation of new legislation. More laws and more complexity are instore.-PHILIP H. ABELSON