What does " establish" mean in this sentences?

President Roosevelt was keenly interested in improvement. He authorized a separate agency for intelligence in June 1941, but it needed time to establish itself and contributed little that year.

♥Sweetness♥2020-02-29T19:25:22Z

It means to become productive enough to actually do the job it was created to do.

Vivian2020-02-29T15:17:26Z

Establish means as: "...it needed time to 'set up' itself and contributed little that year."

Land-shark2020-02-29T14:31:20Z

Put down roots, get up to speed.