But the proving of the anti-trust law as an effective weapon against the flagrantly offending trusts, according to Roosevelt's conviction, was only a part of the battle. As he said, "monopolies can, although in rather cumbrous fashion, be broken up by lawsuits. Great business combinations, however, cannot possibly be made useful instead of noxious industrial agencies merely by lawsuits, and especially by lawsuits supposed to be carried on for their destruction and not for their control and regulation." He took, as usual, the constructive point of view. He saw both sides of the trust question--the inevitability and the beneficence of combination in modern business, and the danger to the public good that lay in the unregulated and uncontrolled wielding of great power by private individuals. He believed that the thing to do with great power was not to destroy it but to use it, not to forbid its acquisition but to direct its application. So he set himself to the task of securing fresh legislation regarding the regulation of corporate activities. Such legislation was not easy to get; for the forces of reaction were strong in Congress. But several significant steps in this direction were taken before Roosevelt went out of office. The new Federal Department of Commerce and Labor was created, and its head became a member of the Cabinet. The Bureau of Corporations was established in the same department. These new executive agencies were given no regulatory powers, but they did perform excellent service in that field of publicity on the value of which Roosevelt laid so much stress.