Congress does not have the expertise to fully regulate all subject, therefore it transfers some of its authority to an agency that does.
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Congress was authorized to delegate some policy making to the executive branch. In recent decades, Congress has practically given up its legislative and regulatory authority by delegating most of it to the executive branch.
In Congress, the trustee will vote according to their own political beliefs. The delegate, however, acts on behalf of the voters and votes in the manner indicated by them, regardless of whether it is what they personally want.
Congress
Confederation Congress
congress tried to remedy the lack of a legal basis for its existance.