HENRY NICKEL: The objective of Professor Stewart's idealized risk management system is simply to do more good than harm. That is not a very radical notion; unfortunately, our statutes do not currently operate to ensure this result in every case.

To determine whether a particular course of action will produce more good than harm, agencies must look at the economic expenditures involved and at the entire spectrum of risks that will be created by a decision to proceed or not to proceed in a particular manner.