The National Academy of Sciences is a private, nonprofit, self-perpetuating society of distinguished scholars engaged in scientific and engineering research, dedicated to the furtherance of science and technology and to their use for the general welfare. Upon the authority of the charter granted to it by the Congress in 1863, the Academy has a mandate that requires it to advise the federal government on scientific and technical matters. Dr. Bruce Alberts is president of the National Academy of Sciences.

The National Academy of Engineering was established in 1964, under the charter of the National Academy of Sciences, as a parallel organization of outstanding engineers. It is autonomous in its administration and in the selection of its members, sharing with the National Academy of Sciences the responsibility for advising the federal government. The National Academy of Engineering also sponsors engineering programs aimed at meeting national needs, encourages education and research, and recognizes the superior achievements of engineers. Dr. William A. Wulf is president of the National Academy of Engineering.

The Institute of Medicine was established in 1970 by the National Academy of Sciences to secure the services of eminent members of appropriate professions in the examination of policy matters pertaining to the health of the public. The Institute acts under the responsibility given to the National Academy of Sciences by its congressional charter to be an adviser to the federal government and, upon its own initiative, to identify issues of medical care, research, and education. Dr. Kenneth I. Shine is president of the Institute of Medicine.

The National Research Council was organized by the National Academy of Sciences in 1916 to associate the broad community of science and technology with the Academy's purposes of furthering knowledge and advising the federal government. Functioning in accordance with general policies determined by the Academy, the Council has become the principal operating agency of both the National Academy of Sciences and the National Academy of Engineering in providing services to the government, the public, and the scientific and engineering communities. The Council is administered jointly by both Academies and the Institute of Medicine. Dr. Bruce Alberts and Dr. William A. Wulf are chairman and vice chairman, respectively, of the National Research Council.

This report reflects the efforts of many people. The panel was established under the auspices of the Committee on National Statistics, directed by Miron Straf, who was instrumental in developing the study and provided guidance and support to the staff.

The panel gratefully acknowledges the funding received from the Economic Research Service (ERS) of the U.S. Department of Agriculture. The administrator of the ERS, Susan Offutt, and its division directors and other senior staff provided publications, documents, information, and consultation that were essential and helpful in the panel's work.

The panel benefited greatly from consultation with current and former agency heads, economists, other social scientists, and historians who gave generously of their time. In particular we would like to thank Harry Ayer, Sandra Batie J. Roy Black, William Browne, David Chu, Willard Cochrane, Lynn Daft, Kenneth Deavers, Clark Edwards, Brian Fisher, Dale Hathaway, James Hosek, John Lee, Jr., John Miranowski, Janet Norwood, Wayne Rasmussen, Sherman Robinson, Vernon Ruttan, John Schnittker, David Schweikhardt, Matthew Shapiro, Ed Simms, David Smallwood, Joshua Sosland, David Sundig, Laurian Unnevehr, Abner Womack, and Gene Wunderlich, as well as others who wished to remain anonymous

The panel's task could not be completed without an excellent, well-managed staff. In particular, the report would not have been possible without the efforts of a number of staff members. The panel is indebted to Joshua Dick, senior project assistant, who skillfully guided the report through numerous rounds of editing in preparation for publication and ably and cheerfully handled the administrative

tasks presented by the panel. Karen Huie, research assistant, provided valuable research assistance. Patricia Eisele and Beryl Watters at Michigan State University patiently keyed and rekeyed numerous versions of the history of ERS. Finally, we are indebted to our study directors. Jeffrey Koshel managed the overall work of the panel and provided counsel during the first half of the panel's work. Upon his departure from the Committee on National Statistics, Andy White ably stepped in to manage activities and help us to meet our deadlines. Together Jeff and Andy worked on all aspects of the project and were always dedicated, responsible, and in good humor.

This report has been reviewed in draft form by individuals chosen for their diverse perspectives and technical expertise, in accordance with procedures approved by the Report Review Committee of the National Research Council. The purpose of this independent review is to provide candid and critical comments that will assist the institution in making the published report as sound as possible and to ensure that the report meets institutional standards for objectivity, evidence, and responsiveness to the study charge. The review comments and draft manuscript remain confidential to protect the integrity of the deliberative process.

We wish to thank the following individuals for their participation to the review of this report: David S.C. Chu, RAND, Washington, D.C.; Kenneth R. Farrell, Vice President for Agriculture and Natural Resources, University of California, Berkeley; Bruce L. Gardner, Department of Agricultural and Resource Economics, University of Maryland; Eric Hanushek, Wallis Institute of Political Economy, University of Rochester; Janet Norwood, Urban Institute, Washington, D.C.; Vernon W. Ruttan, Department of Applied Economics, University of Minnesota; Francisco J. Samaniego, Department of Statistics, University of California, Davis; and G. Edward Schuh, Hubert H. Humphrey Institute of Public Affairs, University of Minnesota.

Although the individuals listed above have provided constructive comments and suggestions, it must be emphasized that responsibility for the final content of this report rests entirely with the authoring committee and the institution.

I close by expressing my appreciation to fellow panel members for their willingness to devote long hours to this project. Coming from diverse backgrounds, they worked together well and patiently. A number of panel members prepared drafts for the panel's use. James Bonnen, in particular, devoted many weeks to drawing together hundreds of sources to provide a comprehensive background and history of ERS and its predecessor agency, the Bureau of Agricultural Economics. All panel members responded in an extremely helpful way to the requests I made of their time.