Kenneth Davis, a leading authority on administrative law, describes the principles of administrative rulemaking as

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Administrative rulemaking is a strategy employed by administrative agencies to fill the gap between law and practice by creating rules and regulations that clarify how the agency intends to implement and enforce laws. It is not necessarily done to avoid lawsuits, answer all questions of policy, or avoid tough decisions, although those may be ancillary benefits. The primary purpose is to ensure that the agency's practices are in conformity with the law. Therefore, the best choice is C.

Kenneth Davis, a Leading Authority on Administrative Law, Describes the Principles