Allow user to search for agencies

This allows the user to do either a quick search (just entering a keyword and searching through the agency names, zipcodes, and city) OR doing an advanced search with multiple fields.  Any of the fields can be used but they don't have to be. Additional fields will be added later. 
yea, it's actually a bit hacky the way we've taught it. technically, you are creating a search/ filter resource.

It's easier to share  search with someone if it's a get request though. It honestly became a norm when google decided it would be.