important that the economic life of the nation should be functioning at its greatest efficiency. But the embargo helped to tide over the crisis. As in the case of food, the public, once it appreciated the necessity of the situation, accepted it cheerfully. Domestic economy was also widely preached and applied, to the slogan, "Save a shovelful of coal a day." The elimination of electric advertisements and the diminution of street lighting, served to lessen the non-essential demand for coal; and the crisis also forced the introduction of "daylight saving," the advancement of the clock by an hour, during the months extending from March to October, thus saving artificial light.

In the meantime the Fuel Administration, the operators, and the miners were coöperating to increase coal production. The enthusiasm of the mine workers was stimulated by making them realize that they were indeed part of the fighting forces. A competitive spirit was aroused and mining conditions were bettered to keep them satisfied. Labor responded to the call. Holidays were omitted and emulation between different shifts became keen. Increased production was

In 1918 the average number of days worked by each miner in the bituminous fields was greater by twelve than that of 1917,

paralleled by more efficient distribution: A zone system, finally put into operation, eliminated approximately 160,000,000 car miles. Local fuel administrators kept in constant touch with the need of the localities under their jurisdiction, studied methods of abolishing unnecessary manufacturing use of coal and refused coal to non-essential industries.

Similar increase in the production and saving of oil was accomplished. The oil-burning vessels of the allied navies and merchant marines, the motor transport service of the armies, all made this necessary. In 1918 the production of oil in the United States was fourteen per cent greater than in 1914. In response to an urgent cable from Marshal Foch, which ran: "If you don't keep up your petrol supply we shall lose the war," a series of "gasless Sundays" was suggested. For nearly two months, merely at the request of the Fuel Administration and without any compulsion except that arising from public opinion, Sunday motoring was practically abandoned. That most crowded of motor

and by twenty-five than that of 1916. During the half-year period from April to September, 1918, bituminous production was twelve per cent greater than in the corresponding period of the previous year, which had itself established a record, despite the decrease in the number of mine workers.

thoroughfares, the Boston Post Road from New York to Stamford, might have served as playground for a kindergarten. The estimated saving of gasoline amounted to a million barrels: about four per cent of the gasoline sent abroad in 1918 was provided by the gasless Sundays.

Credit must be given the Fuel Administration for the large measure of success which it finally secured. It was slow in its early organization and at first failed to make full use of the volunteer committees of coal operators and labor representatives who offered their assistance and whose experience qualified them to give invaluable advice. But Garfield showed his capacity for learning the basic facts of the situation, and ultimately chose strong advisers. When he entered upon his duties he found the crisis so far advanced that it could not be immediately solved. Furthermore, in a situation which demanded the closest coöperation between the Fuel and the Railroad Administration, he did not always receive the assistance from the latter which he had a right to expect.

As a war measure, the temporary nationalization of the railroads was probably necessary. Whatever the ultimate advantages of private ownership and the system of competition, during the period of

military necessity perfect coördination was essential. Railroad facilities could not be improved because new equipment, so far as it could be manufactured, had to be sent abroad; the only solution of the problem of congestion seemed to be an improvement of service. During the first nine months after the declaration of war a notable increase in the amount of freight carried was effected; nevertheless, as winter approached, it became obvious that the roads were not operating as a unit and could not carry the load demanded of them. Hence resulted the appointment of McAdoo in December, 1917, as DirectorGeneral, with power to operate all the railroads as a single line.

During the spring of 1918 the Administration gradually overcame the worst of the transportation problems. To the presidents and management of the various railroads must go the chief share of credit for the successful accomplishment of this titanic task. Despite their distrust of McAdoo and their objections to his methods, they cooperated loyally with the Railroad Administration in putting through the necessary measures of coordination and in the elimination of the worst features of the former competitive system. They

adopted a permit system which prevented the loading of freight unless it could be unloaded at its destination; they insisted upon more rapid unloading of cars; they consolidated terminals to facilitate the handling of cars; they curtailed circuitous routing of freight; they reduced the use of Pullman cars for passenger service. As a result, after May, 1918, congestion was diminished and during the summer was no longer acute. This was accomplished despite the number of troops moved, amounting during the first ten months of 1918 to six and a half millions. In addition the railroads carried large quantities of food, munitions, building materials for cantonments, and other supplies, most of which converged upon eastern cities and ports. The increase in the number of grain-carrying cars alone, from July to November, was 135,000 over the same period of the previous year.

Unquestionably the Government's administration of the railroads has a darker side. Complaints were frequent that the Railroad Administration sacrificed other interests for its own advantage. The future of the roads was said not to be carefully safeguarded, and equipment and rolling stock mishandled and allowed to deteriorate. Above all, at the moment when it was quite as essential to