Relations of the Railways to
The Business Interests
of St. Louis.
ADDRESS BY T. C. PpWELL,
Vice-Presdent, Southern Railway.
March II, 1908.
n beginning my remarks on the relation
of the railways to the business interests of
St. Louis and in attempting to outline those
relations as they were two years ago, I
cannot do better than to refer to the last
report of the Business Men's League and
to quote that part of the report in which
it is said that when the Municipal Bridge
and Terminals Commission
"was authorized by the Municipal As¬
sembly and appointed by Mayor Wells
in the Fall of 1905 the eastern lines,
for the most part, regarded East St.
Louis as their western terminus. Tliey
published no freight tariffs to or from
St. Louis, issued no St. Louis bills of
lading or freight bills, refused all re¬
sponsibility for the receipt or delivery
, of freight in St. Louis and for its car¬
riage between St. Louis and East St.
Louis, while western and southern
lines absorbed in their rates the bridge
or ferry charges."
1
You are familiar with the widespread
interest which this question has excited in
the last three years, but it is only proper
to say that a large part of the public in¬
terest in the abolition of the so-called
bridge arbitrary and of the discussion by
the press was founded on a misapprehen¬
sion of the facts. It was at first assumed
by the press and the public that the elimina¬
tion of the difference between the rates to
East St. Louis and to St. Louis was within
the control of the Terminal Railroad As¬
sociation, and it was because of that er¬
roneous impression that to the Terminal
Railroad Association was ascribed far
greater power and authority than could
possibly be assumed by any terminal com¬
pany. But as prior to the appointment of
the Municipal Bridge & Terminals Com¬
mission there was no unbiased medium
through which the railroads could present
their case to the public, it was not until the
Commission began its labors that it be¬
came manifest to the public that the
service rendered by the Terminal Rail¬
road Association involved much more
than merely crossing the River and that
there was included in that service not
only the use of the Bridges and Fer¬
ries , but also extensive switching service
on the west side, with the use of
tracks, buildings and driveways, all of
which on certain other traffic, such
as that to the Southeast, had for years be¬
come part and parcel of the through rates.
2
such rates being established, not by the
Terminal Railroad Association, but by the
railroads ser\dng St. Louis.
In the History of St. Louis, edited by
Professor Woodward, appears the state¬
ment that when in 1839 the first plans for
a bridge across the Mississippi River were
submitted to Council "there was not even
the thought of a railroad to the River, not
to speak of one over it," and that when
in 1855 Mr. Joshua Dent obtained charters
from the States of Missouri and Illinois
authorizing the formation of a company for
the purpose of erecting a railway suspen¬
sion bridge over the Mississippi River at
St. Louis there was only one railroad lead¬
ing into St. Louis at that time, namely:
the Missouri Pacific, and which had then
been built as far as Washington, Mo., and
while it is a matter of history that the
Wiggins Ferry Company bitterly fought
against the construction of the Eads
Bridge, I take this opportunity of saying
that neither the railroads separately nor
the Terminal Railroad Association and its
allied interests by any action whatever
have obstructed the Free Bridge legislation
or interfered with the building of the
Free Bridge across the river.
For the purpose of this argument the
territory tributary to St. Louis and East
St. Louis may be described as follows :
(i) The section of country directly
west and northwest of St. Louis.
3
(2) The Mississippi Valley territory
and the Southern States bordering on the
Mississippi River.
(3) The Southeastern territory, par¬
ticularly those States bordering on the At¬
lantic Ocean and the Gulf.
(4) The territory lying east of the
Mississippi River and north of the Ohio
and Potomac Rivers, and it is between
this last named section of country and St.
Louis that the rates have been reduced.
Of course, the first commercial develop¬
ment of this city was in connection with
the Mississippi River, and the steamboats
operating on the River charged the same
rates from East St. Louis as from St.
Louis ; so that when the railroads first com¬
menced to compete for this particular traffic
it was perfectly natural that the same rates
should be applied from both cities, and this
was not only true as to the points im¬
mediately on the River but also as to the
interior points in the south which were
reached by means of joint arrangements of
the boat and rail lines.
In a similar way the same condition ex¬
tended to the Southeastern territory. The
first through all-rail route from St. Louis
to the Southeast was via the St. Louis, Iron
Mountain and Southern through Union
City, Tennessee, and when the railroads east
of the Mississippi River commenced to com¬
pete for St. Louis traffic they naturally
adopted the rates which had been estab¬
lished by the Iron Mountain road.
4
Therefore, to the Mississippi Valley and
to the Southeast it is not correct to say that
St. Louis was given East St. Louis rates,
but it will describe the situation more ac¬
curately to state that the East St. Louis
rates were made the same as the existing St.
Louis figures.
It will further illustrate the fact that the
Terminal Railroad Association has had no
power to make the rates to and from St.
Louis to point out that when the rates be¬
tween East St. Louis and the Missouri
River were made the same as from St.
Louis this was not done through any action
taken by the Terminal Railroad Associa¬
tion, but was the result of the competition
of the Chicago & Alton Railway, which
Company, crossing the Mississippi River
over the bridge at Louisiana, Mo., and de¬
siring to compete for traffic between St.
Louis and the Missouri River, undertook to
handle this traffic from St. Louis across the
river to East St. Louis, thence along the
east bank of the River to the "Mississippi
River Bridge" and thence through Louis¬
iana, Mo., westward to the Missouri River,
so that as a matter of policy the Chicago
& Alton established from East St. Louis to
the west the same rates as the more direct
lines quoted from St. Louis.
Now, it so happened that as between St.
Louis and the territory east of the Missis¬
sippi River and north of the Ohio and Po¬
tomac Rivers none of these conditions pre¬
vailed. There was, as a matter of fact, no
5
competitive influence strong enough to
bring about a readjustment of the rates so
that St. Louis and East St. Louis vrould be
on an exact parity, and therefore, the rates
continued to be made as they had been
made in the beginning by adding to the East
St. Louis rates whatever it cost the railroads
to affect delivery on the west bank of the
river in St. Louis ; and, therefore, whereas
to the territory west of the Mississippi
River, to the Mississippi Valley territory
and to the Southeast the St. Louis mer¬
chants reaped the benefit of certain condi¬
tions, resulting in the same total rates from
East St. Louis as from St. Louis to the
territories in question, there were no similar
conditions operating between St. Louis and
New York and the east generally.
From the day the first railroad train
crossed the Eads Bridge until the appoint¬
ment of the Municipal Bridge & Terminals
Commission the railroads east of the Missis¬
sippi River had not thought it encumbent
upon them to assume the cost of making
final delivery in St. Louis out of the estab¬
lished East St. Louis rates.
There is nothing mysterious about the
construction of freight rates. The proper
theory on which to make a tariff of rates is
to so adjust the figures as to result in the
"maximum volume of traffic at the maxi¬
mum rate of freight." No other adjustment
can prevail for any length of time, because
no other adjustment is logical. If a rate is
too low, the traffic is diverted from some
6
other commercial center and a readjust¬
ment follows. If a rate is too high, the busi¬
ness is diverted to some other point, and
a similar readjustment takes place.
But in addition to the fact that up to two
years ago there was no influence powerful
enough to reduce the St. Louis rates to the
East St. Louis basis, there were other in¬
fluences which were strongly against the
plan (which had been discussed from time
to time) of establishing a through rate to
St. Louis and absorbing out of such through
rate the ferry or bridge charges and the
terminal charges on the west side of the
river.
Even if the eastern trunk lines had de¬
cided to establish through rates from New
York to St. Louis and to authorize the is¬
suance of through bills of lading and ex¬
pense bills, no control could have been ex¬
ercised by those trunk lines over the vari¬
ous means of transportation across the
Mississippi River prior to the passage of
the Elkins Bill. There was no certainty that
the various charges assessed for that service,
which included not only the movement
across the river but also the deliveries in
St. Louis, would not be used for other pur¬
poses, and I think I am safe in saying that
until after the passage of the Elkins Bill,
and subsequently the Hepburn Bill, and the
strict administration of those laws by the
Interstate Commerce Commission and the
Department of Justice, the present solu¬
tion of this question would have been im-
7
possible. Withont the assurance of pro¬
tection guaranteed by the enforcement of
those laws it is extremely doubtful if the
eastern trunk lines would ever have con¬
sented to the publication of through rates
to and from St. Louis.
I might give in exact figures the popula¬
tion of the various States affected by the
recent changes in St. Louis rates, but these
figures would not be nearly as expressive as
to say that the reduction in St. Louis rates
has brought the St. Louis community just
that much nearer to more than one-fourth
the population of the United States and
just that much nearer to the greater bulk of
the manufacturing industries of the Union.
Based on the census of 1900 the center of
population of the United States is at a
point six miles southeast of Columbus, In¬
diana, seventy one miles north of Louis¬
ville, Kentucky.
The center of the manufacturing in¬
dustries of the United States is a few
miles East of Mansfield, Ohio, on a direct
line between Cincinnati and Cleveland.
As the point marking the center of popu¬
lation of the United States has moved
steadily westward and from 1790 up to the
present time has not deviated north or
south of the thirty-ninth parallel as much
as one degree, and as the center of the
manufacturing industries of the United
States is also steadily moving westward, it
is quite within the bounds of reason to say
that in course of time the center of popula-
8
tion and the center of manufacturing in¬
dustries will be within the corporate limits
of St. Louis and once there, will continue
there for years.
The fact that the reduction in rates be¬
tween St. Louis and the territory east of
the Mississippi River has been and will
continue to be of substantial benefit to this
business community will be better appre¬
ciated when I say, that, while the total
capital invested in manufacturing in the
entire country is something less than thir¬
teen billion dollars, there is invested in the
manufacturing industries in the territory to
and from which the rates have been re¬
duced, over nine billions, or practically
three-fourths of the entire manufacturing
capital of the country, and it will afford a
further comparison when I add that the
manufacturing capital of the State of Mis¬
souri is about four hundred million dollars,
so that the change in question has brought
closer together the business interests of the
State of Missouri and manufacturing in¬
terests of the territory east of the Missis¬
sippi River, which represents more than
twenty times the manufacturing capital of
this State. I think this is a situation on
which the people of St. Louis and the
people of Missouri are to be congratulated.
It now remains to consider the rates be¬
tween St. Louis and the one hundred mile
limit in Illinois, and the rates on coal from
Illinois mines to St. Louis.
9
First, with relation to the rates between
St. Louis and the one hundred mile zone,
probably some of you are aware of the
fact that there is in the State of Illinois a
body known as the Railroad and Ware¬
house Commission of Illinois, whose duty
it is, among other things, to supervise the
rates of freight between points in that
State. In the exercise of its authority that
Commission has within the last two years
made material reductions in the Illinois
State rates.
Through custom, the territory within the
radius of one hundred miles of a commer¬
cial center is generally regarded as ter¬
ritory local to that community, assuming
that there are no other interests involved.
There are in the State of Illinois a
number of important jobbing points, in¬
cluding East St. Louis, and it was not
thought advisable to attempt to put St.
Louis rates to the Illinois territory within
one hundred miles, on exactly the same
basis as from East St. Louis or on the
same mileage basis as the Illinois jobbing
points. Such an attempt would simply pro¬
voke antagonism and St. Louis would lose
more by incurring the ill-will of the Illinois
merchants than it would gain by a reduc¬
tion in the rates.
Furthermore, it is not at all certain that
such an adjustment of rates could be main¬
tained. It would be entirely within the
authority of the Illinois Commission to in¬
vestigate these conditions, and while the
10
result of such investigation could not be
foretold with certainty, it most assuredly
would not be advantageous to St. Louis.
Therefore, the railroads serving both St.
Louis and the State of Illinois, have reached
the definite conclusion that St. Louis can¬
not properly ask for the same rates as be¬
tween East St. Louis and the communities
within one hundred miles of the latter city.
The Railroads have, however, carried out
in all respects their obligations and have
established tariffs of through rates enabling
the St. Louis Merchant to secure a St. Louis
bill of lading ; and, in the reverse direction,
a merchant, a manufacturer or a farmer
desiring to ship to St. Louis is able to ob¬
tain a through bill of lading to St. Louis
and designate the exact terminal deUvery
desired.
Now, in regard to the adjustment of coal
rates ; this is a question which has given
the transportation companies much con¬
cern in past years and is still a subject of
earnest consideration at different times.
This question can be approached from
two different directions : ( i ) from the
point of view of the lines having coal mines
on their rails in Illinois and at the same time
having industries on their rails in St. Louis ;
(2) from the point of view of those lines
having no preferred interests in St. Louis
but undertaking to place as far as possible
each consumer in St. Louis on a parity with
every other consumer in St. Louis and each
11
coal mine in the separate groups on a parity
one with the other.
The two most important roads having
coal mines in Illinois and at the same time
having numerous industries on their rails •
in St. Louis are the Wabash and the Iron
Mountain, but there has not been up to
this date enough coal mined on those two
roads to supply the industries on their rails
in St. Louis, and this fact was clearly dem¬
onstrated when the Wabash Railroad first
gave notice of its purpose to waive the
switching charge of ten cents per ton and
to make no collection of such charge on
coal originating on the Wabash rails in
Illinois. The information furnished at that
time was to the effect that the anticipated
reduction of ten cents per ton in the cost
of coal did not benefit either the coal
operator or the consumer, unless the coal
operator and the coal dealer happened to
be one and the same company, because,
as a matter of fact, this ten cents reduction
in the rate, when limited to the coal origi¬
nating on the Wabash Railroad, was simply
absorbed by the coal dealer and the delivered
price of coal remained the same as before.
Now at that time the charge of 30 cents
per ton made by the Terminal Railroad
Association from East St. Louis across the
river to St. Louis included also the charges
assessed by all west side roads, so that on
two-thirds and possibly seventy-five per cent
of the coal handled to St. Louis, the Termi¬
nal Railroad Association paid to the de¬
livering lines in St. Louis ten cents per ton.
12
In readjusting the coal rates the Terminal
Railroad Association could go no further
than its own revenue. It had no control
over the total rates or over the switching
charges assessed by the delivering roads in
St. Louis. The Terminal Association, how¬
ever, did announce that irrespective of des¬
tination it would require out of any through
interstate rate established, only twenty cents
per ton whether for delivery to connecting
lines in St. Louis or for delivery on Ter¬
minal rails in St. Louis. It then remained
for the lines originating the coal to decide
what through rate should be made to St.
Louis, and before reaching any final con¬
clusion it was necessary to negotiate with
the delivering or west side lines, so that, if
possible, a uniform rate might be made to
all industries in St. Louis from the inner
group of mines, whether such mines were
located on railroads having tracks in St.
Louis or otherwise.
The Terminal Railroad Association hav¬
ing announced its purpose of charging only-
twenty cents per ton, whether for delivery
to industries on Terminal tracks, including
necessary switching on the west side and
use of team tracks, or for delivery to the
junctions with the west side lines, it was
decided by the carriers in order to estab¬
lish the same total rates to all industries
in St. Louis, to add only twenty cents to
the East St. Louis rate, the lines east of the
Mississippi River undertaking to absorb the
charges made by the west side lines.
13
As already pointed out, this applied to
probably seventy-five percent of the in¬
dustries in St. Louis. If this bad not been
decided upon, the rates on coal would be
today so fixed that with the exception of
such coal as may originate on the Wabasb
or on the Valley Division of tbd Iron
Mountain all industries on the Terminal
Railroad Association and Wiggins Ferry
Company would be able to purchase coal at
ten cents per ton cheaper than industries
located on other west side lines, and it may
be that the difference would be more than
ten cents, because the present arrangement
is a joint one between the connecting car¬
riers, whereby the delivering lines in St.
Louis agreed to accept ten cents per ton if
uniform rates were made to all industries,
and on the other hand, the lines originating
the coal, declined to establish this uniform
total rate, unless the west side delivering
lines accepted what was considered under
these circumstances a reasonable switching
charge. As the situation is today, there¬
fore, the lines east of the Mississippi River
are accepting on probably seventy-five per¬
cent of the coal consumed in St. Louis ten
cents per ton less than the rate to East St.
Louis; that is, the rate to East St. Louis
proper is forty-two cents per ton, and the
proportion received up to East St. Louis
out of the through rate to St. Louis is only
thirty-two cents per ton.
Furthermore, there is an additional ex¬
pense voluntarily assumed by the east side
14
lines to bring about this equality of con¬
ditions, and that is in the additional delay
to cars. It will be remembered that Mr.
Moore, in an interview about two years ago,
pointed out that very few industries in St.
Louis were equipped with facilities for
handling coal economically, and he recom¬
mended that such industries construct
elevated tracks, so that coal could be un¬
loaded at the minimum cost. It may be in¬
teresting to say that following this inter¬
view an investigation made by one of the
railroads developed that out of all the in¬
dustries in St. Louis, except those located
on the Terminal Railroad Association or
Wiggins Ferry tracks, not more than half
a dozen have any facilities for unloading
coal except by shoveling it out of cars by
hand. The result of these conditions is
that whereas on business handled to and
from points on the Terminal, coal cars are
occupied for a period of nine or ten days
in making the round trip from the mines,
two days more are consumed when coal is
delivered to connecting lines in St. Louis,
so that not only do the east side lines as¬
sume a switching charge of ten cents per
ton on the coal destined to seventy-five
percent of the industries in St. Louis, but
they also incur an additional delay of two
days in the use of the cars handling such
coal.
Now, the counter-proposition is in two
parts : ( i ) That the rate on coal to East
St. Louis shall not be higher than twenty-
is
five cents, and (2) that the rate to East
St. Louis shall be extended so as to cover
all the deliveries in St. Louis, and as the
twenty-five cent rate is referred to by the
press as a standard rate which should not
be deviated from, it is proper to explain the
present rate of forty-two cents to East St.
Louis.
I should first say that twenty-five cents
is not a standard rate. It was, as a matter
of fact, at one time the result of irregular
competition on the part of several carriers,
and this competition continued as long as
there were no through rates published to
St. Louis; that is to say, until the Elkins
Law and the Hepburn Law became oper¬
ative.
There was a time when the rate to East
St. Louis from the mines on some roads
was only two dollars per car, but I do not
suppose it will be contended that this
should be considered as a permanent rate.
Eorty-two cents per ton is the rate
authorized by the Illinois Commission from
the nearest mine to East St. Louis, and
although the Illinois Commissioners' tariff
authorizes fifty-eight cents per ton for
thirty miles, by the voluntary action of the
railroads this forty-two cent rate is ex¬
tended so that it covers all mines within a
radius of thirty miles of East St. Louis,
and so as to include all the mines pro¬
ducing so-called standard coal, and even
from the mines further distant than thirty
miles the railroads have not taken advan-
16
tage of the Illinois Commissioners' tariff but
have established the rates on coal from the
mines outside the standard group on a
differential basis, resulting in rates much
lower than the Illinois scale, and with thei
result that there is active and healthy com¬
petition between the several groups of
mines and the several grades of coal.
To put the matter briefly, the rate of
forty-two cents to East St. Louis is the
minimum rate authorized by the Illinois
Commission from any one of the mines in
the inner group. The rate of sixty-two
cents to St. Louis is made by adding twenty
cents per ton to the Illinois Commissioners'
rate, but instead of limiting the sixty-two
cent rate to the industries on the Terminal
Railroad Association and Wiggins Ferry
tracks the east side lines have extended this
sixty-two cent rate so as to cover prac¬
tically every industry in St. Louis, so that
to seventy-five percent of these industries
the net revenue of the east side lines is
ten cents below the rate to East St. Louis
proper.
The present adjustment, in my opinion,
is the best adjustment that St. Louis has
ever enjoyed. It is true that in times past
the rates to East St. Louis and St. Louis
have been spasmodically lower than they are
today. That condition was the result of ir¬
regular competition and the outgrowth of
circumstances which today would be illegal.
It is far better for a manufacturer who con¬
tracts for ten thousand tons of coal on a
17
freight rate of sixty-two cents per ton to
know that a competitor who consumes fifty
thousand tons will get no better rate of
freight than it is to get a cut rate with no
assurance that his competitor will not re¬
ceive a better one, and the present plan un¬
der which these through rates are con¬
structed and published is the only plan un¬
der which this result can be achieved.
Since this adjustment was reached the
rates on coal to St. Louis and East St.
Louis have been more stable, and
therefore more satisfactory to the ship¬
pers and consumers than during any
other previous period of similar length.
The general plan of the adjustment reacts
beneficially upon the whole community. It
places every available manufacturing site in
St. Louis on an equal basis so far as the
fuel supply is concerned, and I think that,
upon investigation, it will be found that no
other important city in the country enjoys
this privilege to the same extent as it is
enjoyed by St. Louis. It is to the interest,
therefore, of the actual consumers of coal
and of the property owners to discourage
any attempt to break down the present sat¬
isfactory arrangement, because the break¬
ing down of that arrangement will simply
result in inequality and discord. Now, if
you will permit me, I want to say a few
words upon the railroad situation as it ex¬
ists today.
I need hardly tell you that up to and in¬
cluding October of 1907 the volume of
18
traffic was being handled in ever-increasing
amounts, so that as to a great many rail¬
roads the gross earnings for the month of
October were the maximum earnings of
their history. The first effects of the ap¬
proaching depression in business were felt
in November. In the months of December
and January it appears that nearly every¬
thing was at a standstill, but in the month
of February on a great many railroads the
situation was even worse than in January,
and we are now well into the month of
March with only a slight increase in the
volume of traffic as compared with the pre¬
ceding months.
A railroad is nothing more or less than an
improved means of communication, but the
means of communication can be of no value
whatever if the people are not able to travel
or if they have nothing to ship.
We are told that within the last two
weeks the amount of coin and bullion in the
United States Treasury reached the unpre¬
cedented figure of one billion dollars, and
yet during the latter days and weeks in
which this enormous amount was being ac¬
cumulated the business conditions remained
stagnant.
Every effort is being exerted by railroad
managers to reduce expenses, but the de¬
crease in earnings has been so sudden and
radical that in many cases, and, in fact, in
most cases, it has been impossible to reduce
the expenses of operation to the same
amount that the revenue has decreased.
19
There has been, unfortunately, a pre¬
vailing impression that the volume of ton¬
nage to be moved and the number of peo¬
ple desiring to travel could be limited only
by the capacity of the railroads to furnish
freight and passenger cars in which to han¬
dle the traffic. The situation today demon¬
strates the error of such an impression.
A little over a year ago the Interstate
Commerce Commission held a session in this
city in order to obtain information on the
prevailing car shortage. Today there are
over three hundred thousand freight cars
standing idle. I do not refer to this situa¬
tion now for the purpose of explaining the
causes. You know them better than I do,
but I do refer to these present conditions
for a specific purpose and that purpose is
to say that the time has arrived for the
business men of the United States to re¬
gard the railroads as one of the essential
parts of their business equipment, and
guarantee to the carriers a reasonable re¬
turn for work performed.
The freight rates in this country are un¬
necessarily low. For years it has been our
boast that the American railways have been
handling cheaper than the railways of any
other country vast volumes of freight
traffic committed to their care. In all these
years in which the freight rates have been
steadily going down, the expenses of or¬
ganization, maintenance, equipment, and the
prices in practically every detail connected
with the operation and development of a
20
railroad have advanced. The present period
marks the turning point. Regardless of the
views of any individual shipper, and re¬
gardless of the so-called revelations as to
large railroad profits of which we have
been told, it is the duty of the business com¬
munities of this country to co-operate in ad¬
vancing the rates of freight practically
throughout the entire country. It may be
that in isolated cases there are inequalities
in rates, but, generally speaking, the rates
are too low, and such inequalities when re¬
moved, must be removed by advancing the
lower scale instead of reducing the higher
scale. The rates of freight are more fre¬
quently too low than too high. The country
will be most prosperous when the employes
are receiving fair wages, the merchants are
making fair profits, and the railroads are
charging rates which bring in a reasonable
remuneration and which allow a fair
margin between profit and loss.
The methods of construction and the
character of equipment which were formerly
prevalent are no longer satisfactory. The
expenditures for rails, ties, ballast and
other parts of the roadbed, for bridges and
for freight and passenger stations, and for
engines and cars have been increasing from
year to year in much greater proportion
than the revenues from the freight or pas¬
senger traffic, and it is for this reason that
at this time, when carriers should be in posi¬
tion to cut down their expenses to the same
extent as the falling off in traffic, that we
21
find ourselves confronted with an almost
irreducible scale of expenses and a materi¬
ally reduced volume of revenue.
This country cannot afford to have a
repetition of the transportation conditions
of the last few years and the last few
months. No sensible manufacturer would
overtax his facilities to the extent to which
the railroad facilities of this country have
been overtaxed.
The only means by which the railroads
can support themselves is from the freight
and passenger revenue. There is no
mysterious source from which to draw
funds, and I repeat that it is one of the
responsibilities of every business man in
this country to take the railroads into
partnership, to see that they are not un¬
duly burdened with expenses, and to co-op¬
erate in establishing a scale of freight
charges throughout the country which will
afford ample revenue to the carrier and at
the same time result in doing full justice
to the shipper and receiver and to the
employe.
22