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by collective means, or even between individuals, requires and implies some voluntary action. People may be made to go into the same room, but they can't necessarily be made to agree. Be patient, Senator, this is an educational process. You never get people to do the thing you think they ought to do on the first try. It's a matter of setting up a custom, setting up a habit, setting up a reasonable desire on the part of a number of them to do the right thing. The codes are such that more and more employers will gradually meet their employees for collective bargaining.

“But,” said the Senator, “that isn't fair. It isn't fair that those who are good citizens and trying to cooperate should be made to deal with their unions collectively, where- as those who are just recalcitrant and stubborn don't have to. They may get the drop on the others.”

All of this, of course, is true. So he began talking about a law and I know that he put Rifkind to work very early, within those first two or three months, on finding out what were the possibilities of such a law, what kind of a law could be developed. There was no precedent for anything of this sort, of course, What he had discovered was that he had no authority under the NRA, that the Board which Johnson had set up had no authority and that neither did Johnson have any real authority. All he could do would be to revoke the code, which was exactly the opposite to what Johnson