The American people have a right to this test. They should not be denied it. It is to their interest that it should be done. In my opinion, it is the only practicable and reasonable method of determining the right solution of this grave economic problem.

I am not now and have not been for the past year interested in proving or disproving the theory of Government ownership or any other kind of theory. The railroads have been operated for the past year with the purpose of serving efficiently the paramount needs of the war and at the same time furnishing the best possible service to the public, whether such operation tended to prove or disprove any theory or railroad control, no matter what it might be. I have formed no opinion myself as to what is the best disposition of the railroad problem because the test has not been sufficient to prove conclusively the right solution of the problem. I believe that a fiveyear test will give the American people the right answer. An ounce of experience is worth a ton of theory, and with the start already made under war conditions, it would be a comparatively simple matter to complete the test so well begun and thereby gain the invaluable experience which will determine the solution of a problem which has vexed our State and National politics and our economic development for the past generation.

There are those who may say that an extension of five years for such a test will mean Government ownership. Personally I do not believe it. But whether such a test would indicate that the ultimate solution shall be Government ownership or a modified form of private ownership under effective Federal regulation, should not cause us to hesitate or refuse to act. It seems to me that in a democracy like ours, where public opinion and the judgment of the majority must finally control, the plain duty is to take those steps which will fully inform public opinion, so that the judgment may be based upon knowledge rather than upon theory. Any test which will illumine the subject so completely that public opinion may operate upon it intelligently would seem to me to be desirable in any circumstances.

In this connection, may I draw your attention to the statement I made before the Committee of the Senate on January 21, 1918, in reply to a Senator who asked if I believed "in the Government ownership of railroads," I said:

I do not, or I have not, at least, felt that it was necessary to take the actual ownership of the railroads. I believe that it will be impossible after the return of peace to restore the competitive conditions to the same extent as they existed prior to the outbreak of the war. I favor some form of governmental regulation and control of a far stronger, more intelligent, and effective character than we have had heretofore, because I am satisfied that a stronger Government control will be demanded and will have to be worked out, both in the interest of the public and in the interest of the security holders of these railroads.

Those who may oppose an extension of five years should face the situation squarely and acknowledge that they prefer the immediate return of the railroads to private control under the old conditions. without remedial legislation. It is idle to talk of a return to private control under legislation which will cure the defects of the existing laws. There is neither time nor opportunity for such legislation at present. It is impossible and hopeless for the Government to attempt the operation of the railroads for 21 months after peace under the present law. Therefore, the country should squarely face the condition that the railroads must promptly go back into private control with all existing legal difficulties unless the only practical alternative, viz, an extension of time, is promptly granted.

I hope that the Congress in its wisdom will grant a five-year period for a test of unified railroad operation under proper provisions of law which will make that test effective and at the same time take the railroad question out of politics while the test is being made. Unless this is done, I do not hesitate to say the railroads should be returned to private ownership at the earliest possible moment. The President has given me permission to say that this conclusion accords with his own view of the matter.

Director General McAdoo to-day authorized the following: In anticipation of heavy holiday travel which will be augmented by large numbers of soldiers and sailors on leave, on furlough, and discharged from the service, who will receive the benefit of reduced rates, the chairmen of the passenger traffic committees have been instructed to arrange ample ticketing facilities at the military camps to give attention to providing adequate train service and when necessary to keep consolidated ticket offices open to a reasonable hour at night to permit the advance purchase of tickets for holiday trips. Regional Directors Markham at Philadelphia and Winchell at Atlanta have been asked to give careful attention to providing the necessary train service to take care of the heavy travel expected to move in their territories and particularly north and south through the Washington gateway on account of the many military camps along the Atlantic seaboard.

In Washington, the consolidated ticket office will be kept open daily, except Sundays, from December 16 to December 24, until 9:30

p. m. The advance purchase of tickets and securing of sleeping-car accommodations is being urged. The ticket selling and information facilities at the city and depot offices are filled to capacity. A second information booth has been installed in the depot. There will be 28 ticket windows at the depot open day and night as against 12 windows in operation last season. Orders have been placed for a large amount of extra sleeping and parlor car and coach equipment. The Union Transfer Co. has doubled its force with view of handling holiday baggage without delay. The red cap force at the station has been increased 100 per cent and extra station police will be provided. Special passenger representatives will be assigned to depot work throughout the holidays to facilitate the movement of traffic and straighten out questions regarding tickets, etc., and any confusions that arise. The passenger representatives assigned to the governmental departments have circularized the various buildings and are getting all advance information possible relative to those who will go on vacations and those who will leave here during the holidays permanently, with view to selling them tickets and arranging for accommodations in advance. All schools in and around Washington have been looked after and arrangements made to take care of the scholars going on vacations. The terminal officials, as well as Pullman officials, have been fully posted and are alive to the situation.

LIST OF GENERAL ORDERS.

1. Employees' status January 1, 1918; common use of facilities; routes and rates, etc.

2. Accounting methods to continue as prescribed by the Interstate Commerce Commission.

3. Demurrage charges.

4. Classification of railroads in Eastern, Southern, and Western Regions.

5. Creation of Railroad Wage Commission.

6. Restrictions in expenditures of moneys; issuance of free passes.

Supplement No. 1: Newspaper advertising payments.

Supplement No. 2. Newspaper advertising payments.

7. Demurrage charges (cancel G. O. No. 3).

Supplement No. 1. Demurrage charges.

8. Hours of service safety appliances, and inspection laws; employees' status. 9. Restrictions in filling offices paying $3,000 and up and $10,000 and up.

10. Inventory of material and supplies.

11. Universal interline waybilling and standard forms.

12. Rules regarding charges to capital accounts.

Supplement No. 1. Rules regarding work involving charges to capital account not in excess of $25.000 (amendment to par. 5, General Order No. 12).

13. Railway Board of Adjustment No. 1.

14. Daylight-saving law.

15. Requirements relating to construction, maintenance, and operation of new industry tracks.

Supplement No. 1. Industry tracks; contracts; discontinuance of use of track.

16. Railroad presidents designated as companies' principal executive authorities. 17. Rules governing recording of and accounting for all transactions arising during Federal control.

18. Lawsuits against carriers while under Federal control.

18-A. Supplement.

19. Announcement of possession and control of four steamship companies.

20. Discontinuance of certain checking of operating bills.

21. Simplified bases for apportioning interroad freight revenues.

22. Appointment of general manager New York Canal Section.

23. Weekly cash reports.

Supplement No. 1. Instructions governing rendering of weekly cash report, Form T-5.

24. Insurance instructions.

25. Extension of freight credits.

25-A. Extension of freight credits. 26. Suits against carriers.

27. Wages of railroad employees. (G. O. No. 27, for 1918, consists of 31 docu

ments.)

Supplement No. 1. Salary and wage adjustment.

Supplement No. 2. Hours, wages, pay of Pullman Co. operating depart-
ment (except conductors, porters, maids).

Supplement No. 3. Railroads added to and made part of Article I of
General Orders No. 27.

Supplement No. 4. Wages, hours, and other conditions of employment
of employees in mechanical departments specified herein.

Interpretation No. 1 to Supplement No. 4 to General Order No. 27 and Addendum No. 2 thereto. Employees in any department to be given correct classification if present pay-roll classification does not conform to ruling of Supplement No. 4 to General Order No. 27. Interpretation No. 2 to Supplement No. 4 to General Order No. 27. Question and decision regarding mechanics and helpers engaged in construction, maintenance, and repair of electric, electric-pneumatic, electric-mechanical, and mechanical interlocking and signaling systems; also machinists, electricians, blacksmiths, pipe fitters, etc.

Amendment No. 1 to Supplement No. 4 to General Order No. 27. Re-
moval of certain inequities concerning compensation for helpers—
shop crafts.

Addendum No. 1 to Supplement No. 4 to General Order No. 27.
Rates of pay and rules for coach cleaners.

Addendum No. 2 to Supplement No. 4 to General Order No. 27.

Rates of compensation for certain classes of employees.

Supplement No. 5. Employees of operating department of Pullman Co.; wages, hours, and other conditions of employment.

Supplement No. 6. Duties and authority of Board of Railroad Wages and Working Conditions extended.

Supplement No. 6-A. Application for interpretation of wage order. Supplement No. 7. Rates of pay and rules for overtime and working conditions for all clerical forces in all departments and for certain employees in stations, storage or terminal warehouses, docks, storehouses, shops, and yards are hereby ordered (superseding G. 0. No. 27, and in lieu thereof, as to employees herein named). Interpretation No. 1 to Supplement No. 7 to General Order No. 27. Overtime monthly, weekly, or daily paid employees.

Interpretation No. 2 to Supplement No. 7 to General Order No. 27. Employees paid on a tonnage or piece-work basis, earning in excess of 43 cents per hour; rates of pay.

Supplement No. 8. Rates of pay and rules for overtime and working conditions for employees in maintenance of way department (except mechanics and helpers where provided for in Sup. No. 4, G. O. No. 27, and clerical forces).

Interpretation No. 1 to Supplement No. 8. Overtime monthly, weekly, or daily paid employees.

Interpretation No. 2 to Supplement No. 8. House and bridge carpenters-rates of pay.

Supplement No. 9. Additional duties of railroad wages and working conditions.