In just a decade the Food and Drug Administration has evolved from amorphous obscurity deep within the capital bureaucracy into both the world's paramount regulator of consumer goods and the Federal Government's most criticized, demoralized and fractionalized agency. With the agency's ban on saccharin, it is again at a storm center of complaints from consumer groups that the action was too long delayed and from diet food interests that the step was capricious and without scientific justification. But the agency, a bureaucratic waif that is responsible for overseeing a staggering $200 billion worth of products yearly, is not only whipsawed by the public controversy, it is so demoralized that a number of its top positions long go unfilled, so burdened that it cannot keep up with the explosion of consumer goods and so battered by lawsuits and outside pressures that its power to make its decisions stick is sometimes undermined. In just the last three years the agency has been the target of more than 100 Congressional investigations, 50 highly critical reports by the General Accounting Office and a series of internal inquiries despairing of ever setting the place right. After his departure as Commissioner of the agency in 1969, Dr. Herbert E. Ley said that "what the F.D.A. is doing and what the public thinks it's doing are as different as night and day." He complained further that during his 18 month tenure he had been under "constant, tremendous, sometimes unmerciful pressure" from drug industry officials.