ii: s a V^F (Cornell lmtter0ttg SItbrarg Stljaca, ^tta ^atk v/ OkA/ Cornell University Library HF3030 .AS 1919a Report of the War Trade Board Clin 3 1924 030 152 742 Cornell University Library The original of this book is in the Cornell University Library. There are no known copyright restrictions in the United States on the use of the text. http://www.archive.org/details/cu31924030152742 REPORT of the cj Q_ WAR TRADE BOARD ,/? Y ^' WASHINGTON GOVERNMENT PRINTING OFFICE 1920 LETTER OF TRANSMITTAL. War Trade Board, Washington, June 30, 19J9. Mr Dear Mr. President: There is transmitted herewith the Ec- port of the War Trade Board. The report describes the adminis- tration and eifect of war-trade control from June 15, 1917, to June 30, 1919. It sho\Ys the origin and development of the War Trade Board, its functions, its policies, and their resuhs, and its organization. The report is divided into six parts, including the appendix. Part I. The establishment of the War Trade Board and delegation of powers to it. Pai't II. The Avar-trade policy of the United States and the functions of the War Trade Board. Part III. The execution of these functions. Part IV. The relaxation of war-time control over trade. Part V. The organization of the War Trade Board. Part VI. Appendix. Eespectfully, To the President, The Wh;te FIou-v\ Wasltington, D. G. Vance C. ]\IcCokjiick, (liainnan, AYar Trade Board. THE WAR TRADE BOARD. A'akoe C. iIcCoi!MicK — Chaii-mau, and representative of the Secretary of State. Thomas L. Chadbourwe- Counselor, and representative of the Secretary of State. AxBEKT Steauss Representative of the Secretary of the Treasury. George O. M.yy Representative of tlie Secretary of the Treasury. Alonzo E. Taylor Representative of the Secretary of Agriculture. Thomas D. Jokes Itepresentative of tlic Secretary of Commerce. (Re- signed .Jan. 1, 3918.) Clarence M. Woolley Representative of the Secretary of Commerce and of the War Industries Board. Frank C. SItjnson Representative of the United States Shipping T'.nard. (Resigned Aug. 31, 191S.) Edwin F. Gay Representative of the United States Shipping Board. Beaver White Representative of tlie Food Administrator. George H. WARRiNGTON_Representatlve of the Food Administrato;-. C. Arthur Richard.s Representative of the Food Administrator. Lawrence Bennett Secretary. John Foster Dulles \ssistant to the Chairman. St. John Ferret SjiHCial assistant to the Board. S. B. Congee Foreign adviser. (Resigned Nov. 25, 191S. ) Herbert N. Straus ^Controller. (Ttesigned Oct. 18, 1918.) v BUREAUS or THE BOARD AND THEIR DIRECTORS. Exports- _^ C. A. Richards (Oct. 15, 1917-Feb. 13, 1918, and Oct. 18, 1918-Apr. 29, 1919). H. B. Van Sinderen (Feb. 13, 1918-Sept. 20, 1918). A\ H. McCutcheon (acting, Sept. 20, 1918-Oet. 18, 1918). .T. B. Miller (Apr. 29, 1919-.Tune 30, 1919). Imports Fred B. Peterson (Nov. 22. 1917-Apr. 3, 1919). Miller Hamilton (Apr. 3, 1919- June 30, 1919). P. Cliauncey Anderson, counsel to- Bureau of Imports (Nov. 22, 3917-Dec. 13, 1918). Enemv Trade Goldthwaite Dorr (acting, Oct. 15, igiT-Dec. 4, 1917). Jolui Henrv Hammond (Dee. 4, 1917-Feb. 15, 1918). Charles -V. Huston (Feb. 15, 1918-Apr. 3, 1918). I'aui Bnkewell, I'r. (acting. Mar. 6, 191.S-Apr. 12, 1918). Paul Fuller, ir. (actiuR Apr. 12, 191S-.Tune 14, 1918). ('. H. Hand, jr. (."June 14, 1918-Sept. 23, 1918). .lohn N. Enriuht (Oct. 15, 191S-Dec. 15, 1918). Rich;ird Ely (acting', Dec. 15, 1918-Apr. 17, 1919). H. P. Fairlianks (Apr. 17, 1919~.June 30, 1919). Transportation 1,. L. Richards (Oct. 15. 1917-Mav 15, 1919). ('. Earl B:-own (May 16, 1919-.Tunf 30, 1919). Research Allyn A. Young (Oct. 15, 1917-Dec. 22, 1917). W. M. Adriance (Dec. 22, 1917-May 25, 1918). .\. B. .Swansoii (.Tune 24, 1918-Dec. .31, 1918). Karl DeLaittre (.Jan. 1, 1019 -June .30, 1919). W;ir Trade Intelligence '_ Paul Puller, jr. (Oct 15, 1917-nec. 15, 1918.) Richard Ely (Dec. 15. 1918-.M'r. 17, 1919). Uiiynor Jl. Gardiner (Apr, IS, 1919-May 8, 1919). Foreign Agents i 'harlcs Ix-nliy (Nov. 2, 1917-Mar. IS, 1918). (iustnvus Kiii)y (acting. Mar. 18, 191S-Sept. .5, 1918). Chester Lhiyd .Tones (Sept. 5. 191S-Jan. 17, 1919). John R. Stewart l.lan. 17, 1919-Jnne 30, 1919), Administration Harry A, Engnian (Oe-t. 15, 1917-:\Iar. 1, 1918). S, D. Maddock (acting. Mar. 1, 1918-Apr. 30, 1918; Apr. 30, 191S-Fel>, 15, 1919). K, W, Gaus (Feb. 15, lOl'.i.-Juiie :!(), 1919), Branches and Cnstoms__..\lexiinder H, Bullock (acting. Feb. 12, 1918-May 28, 1918: May 28, l!)lS-M;ir. 12, 1919). P, E, .Marean (M;ir. 12, I'.HO-June 30, 1919), T.il)ulation and Statis- Lowell J, Reed (Oct, 16. 1917-Oet, 8, 1918). tiw-" W. C. Sims (actin.g, Oct. S, 1918-Noy, 12, 1918), Division of Inforniation-Lonis E. Van Norman (Jan, 14, 191S Jnn, 27, 1919). Paul :\toore (.Ian, 27, lOlD-Jnne 3ii, 1919). Conti'aliand C^onnnittee-.C. A. Richards, Chairman. P. (.'hauncey .Anderson, W, Kingxland Jlaev. i:, Iv, ilin-se, Richard .\, Strong, .Tames Warren ^le(''rosky. W. P, Hardenbergli, jr,, secretary. iThe Bureau of War Trade Inlelligence was merged into the Bureau of Enemy Trade NoV^'r' ^ioTs" °* Tabulation and Statistics was merged in the Bureau ol Research on SYNOPSIS OF CONTENTS. Part I.— Establishment of the Wab Trade Board akd Delegation of Powers to It. I. Espionage act, June 15, 1917, Title VII, granting authorilv to tlie President to control exports 1 o II. Executive order of June 22, 1917, placini;- administration of this control with Secretary of Commerce o III. Proclamation of July 9, 1917, subjecting export of certain com- modities to control liy license 2 IV. Executive order of August 21, 1917, establishing Expoi'ts Adminis- trative Board and transferring to it the authority to license controlled exports 3 A'. Proclamation of August 27, 1917. extending list of connnudities subject to export license control 3 VI. Trading-with-the-enemy art, October 6, 1917, granting author! I y to the President to control imports and enemy trade 1__. 4 VII. Executive order of October 12, 1917, establishing the A\'ar Trade Board and giving it complete autliority to license expoi-ts, im- poi'ts, and enemy trading 5 VIII. Proclamations of Xovember 2S, 1917, one extending the list of com- modities subject to export license control; the other esliiblishing the first list subject to import license control 6 IX. Proclamations of February 14, 191S. subjecting the export nnd im- port of all commodities of commerce to control liy license 7 Part II. — The War Trade Policy of the United States and the Functions OF THE War Trade Board. Page. I. The situation when the United States entered the war — Allied con- trol of M-ar traded 10-12 A. Supplies to the enemy in B. Bunker control 12 0. Enemy trade — the allied blacklists 12 II. Tlie war trade policy of the United States 12 A. Conservation of domestic supplies for the United States and the allied nations 12 B. Prevention of trading with the enemy 12 C. Conservation of tonnage 12 III. Functions of tlie War Trade Board 12-13 A. Commercial isolation of the enemy 13 B. Financial isolation of the enemy 13 C. Obtaining essential supplies 13 F). Conservation of ocean tonnage 13 Part III. — The Execution of the Functions of the War Trade Board. I. the commercial isolation of the ENEJtY. Page. The control of exports by licenses — blockade of the border luMitrals — 16-19 The embargo on exports to neutrals 16 The note to the neutrals 1<3 The machinery of the l)lockade — IS VII VIII SYNOPSIS OF CONTENTS. Pags. Agreements with the borcle'- neutrals - — 20-30 Terms on which tlie eml)iirso was lifted — control of exports to Cen- tral Po«<'rs 20 Guaranties against reexports 20 Restrictions and prohibitions on domestic exports 21 Local control organizations 24-26 Relaxation of embargo on nonessentials ^^ 26 Neutral rations 27-29 Purchases of neutral supplies under the agreements and encourage- ment of interneutral trade 20 Results of the blockade policj' 31-45 United States exports to the border neutrals and to the Central Powers '— 31 United States exports of specified commodities to northern neutrals 33 Kxports from the border neutrals to the Central Powers 37-45 II. THE FINANCIAL ISOLATION OF THE ENEMY. Allied control of enemy trade and its results 46-47 Purpose 46 Restriction of power of enemy to finance war 46 Destruction of world trade organization of enemy commercial inteivsts 46 :Method— the allied blacklists 46 Results of allied control 47 The control of enemy trade by the United States 47-61 The problem 47 Creation and delegation of powers to control enemy trade 47 AVork of the War Trade Board 48-56 The determination of " enemy " status — the war trade Intelli- gence service 48 The eneniy trading lists 49 Location of enemy property in the United States 50 Location of enemy stocks in neutral countries .50 The control of enemy Interests .50-52 Vise of license applications \ 50 Special cases — supplementary agreements 50 Refusal of ships' bunkers to enemy traders and supervision of sale and transfer of vessels 51 Control of enemy stocks in neutral countries 51 Conti-ol of enemy property in the United States — in hands of the Alien Property Custodian .52 The unification of the allied blacklists and the enemv trading lists 52-56 Results of the policy of control over enemy trade 56-61 Restriction of enemy trade in foreign countries 56 Locating enemy property in the United States and guarding against reinstatement of enemy interest 59 Reduction of illicit trafinc with enemy through control of bunker supplies and of sale and transfer of vessels .50-61 III. OBTAINING ESSENTIAL SUPPLIES AND CONTROTXING PRICES. Export conservation 62-75 The domestic conservation program of the Ignited States 62 The coordination of export policy with the domestic conservation program 63-72 The export conservation list 63 Exports to Allied Governments and to private importers in Allied countries 64 Rations to firms manufacturing war materials 65 Exports of conserved commodities as compensation for necessary suppUes imported or furnished the American Expeditionary Forces or the Allies '_ 66-68 Switzerland gg Spain 1^_2 66 Iceland gg SYNOPSIS OF CONTENTS. IX Export conservation — Continued piogram — Continued. Moditicfltions of the conservation policy-tood rations to other ^''"'' American countries and to West Africa 68-71 The control of rations of liighly conserved commodities """"" 71-7" Export allocations ' y rj^ Control established in countries of desfinatioii ___ "III 71 " Special evidence " cases 72 Local food-control committees I " 72 " Government approvals " " -j') Statistics of export control "" j^, ^'uwdftfs" "^*^ importation into tlie UniUHn^t^tes^Trf'VsTeTiUar'cmn" The dithcult.v of obtaining essential c~omnMdifies"ar the" t'inie~~the ' ' Lnited States entered the war 7r, Early private attempts to facilitate imports ' ^__ ;; '___ 77 The work of the •\\'ar Trade Board in fncilitatin^- ini.Ku-ts 79-9') Securing relaxation of the export restrictions of the Allies and neutrals 79-90 . AVool from British sources 82 Burlap bags from British sources ] sa Tin from British sources 85 Fhix from British sources 85 Chromite from French sources 8.s Emery from French sources 89 Tin from the Dutch East Indies 91 Quinine and cinchona bark from the Dutch East Indies 93 Acquisition of essential supplies by special representations to foreign Governments in cases where the importer was unable to obtain the desired goods 97-99 Inability to secure an export license for shipment of goods__ . 97 Inabihty to secure a high priority rating for the n'oods to be manufactured or shipped 97 Inability to obtain from British offlcials shipping permits for shipment of goods from border neutrals 9s Impossibility of foreign manufacturer .supplying American importer because of inability to obtain from some other country the necessary equipment 99 Aid in obtaining shipping space 99 Control over the distribution of imports 1(X) Regulation of imports to meet the needs of the Allies and neutrals 100 Restrictions placed upon imports from Europe of commodities needed there more than in the United States 101 Restrictions placed upon imports of corn in order to facilitate shipments of wheat to Switzerland 101 Restrictions upon the importation of corn modified in order to release equivalent amounts to Belgium 103 Checking speculation and hoarding, and regulating prices through con- trol of imports 103-108 The necessity of control 103 Checking of speculation and hoarding 103 Methods used by the War Trade Board to regulate prices 104 Guaranties from importers 104 Government option to buy lO.I Centralized buying 100 Import embargoes 107 IV. OHT.VIXIXG TO>;x.A.fiE VOI! 1] ILIT.VEY NEEDS. The ocean transportation problem 109 Tonnage by negotiation 109-118 Dutch tonnage 109 President's statement 109 Swedish tonnage 133 Modus Vivendi 113 Swedish agreement 114 A SYNOPSIS OF CONTENTS. Tonnage by negotiation — Continued. •^^^^• Norwegian tonnage llo Steam vessels, fifty-fifty agreement H-'^ Japanese tonnage 1 IIT Steamers chartered IIT Shipbuilders' agreement H" Danish tonnage US Summary 11 S Control of bunker supplies 119-122 British use of bunker control 119 Bunker control by the War Trade Board 120-122 Sailing vessels forbidden to enter the submarine zone 120 Small American steamers forbidden to make trans-Atlantic voyages 120 Vessels to be laden to their fullest capacity 121 Discouragement of long hauls 121 Attempts to keep vessels actively employed 121 Quality of bunker fuel 121 Restriction of the use of coal for stiffening : 121 Discharge of surplus bunkers at foreign ports 122 Control over return trip 122 Regulation of imports 122-136 The policy of tonnage conservation by means of import control — 123 Methods used 123 Prescribing the method of conveyance 123 Shifting the sources from which imports were obtained 121 Stimulating the Import of materials in their more concentrated form 120 Ifeduction of the quantity of goods imported 129 Export priorities 136, 137 Difficulties of the tonnage situation 136 Export control originally directed toward — Prevention of supplies to enemy — Neutral blockade 136 Conservation 136 Problem created by import restrictions 136 Lack of tonnage to carry available exports 136 Shipping preference plan for east coast South America 136 Tables and sraphs showing the withdrawal of shipping from Central America, South America, and the Far East 137-145 Pai;t IY. — The Rklaxatiom of A\'ai;-Time (''oxteol Ovek Tkade. The transfer from a war to a peace basis 148,149 The prearmistice period 14s November 11 and after 14S Relaxation of commodity control 149-162 Reducing the export conservation list 1-19-150 iletals, machinery, instruments, etc 150 Chemicals, dyestuffs, and fertilizers 151 Miscellaneous commodities 151 Aslii'stos 151 Hides and leather 152 Horses and mules 152 Fibers ir,2 Rubbei- 154 I\lineral oils 154 Postage, revenue, and other stamps 154 Wood and paper 155 Foodstuffs, fodders, and food animals 156 The export conservation list on June 1, 1919 157 Summary 158 Relaxation of country control exercised for conservation purp(ises_ 159-162 Change of policy 159 Relaxation of control by agencies of the Associated Governments. 160 Exports to the major Allies Igl Exports to neuti'uls 1(51 Exports by mail lg2 ^riV l HrSl ^ OF CONTENTS. XI Page. Relaxation of tlie blockade 103 The free lists 163 Origin of the free lists 163 Consolidation of the free lists 163 Conditions governing the exportation of free-list commodities 164 Ration increases and nonrationed lists Ki.") Increases in neutral rations 165 Nonrationed lists for Sweden and Norway Ki.! Suspension of all quantitative ration limitations 16G Simplification of the blockade machinery 166 Character of war-time control 166 Early changes in procedure 166 Curtailment of the use of import certificates 167 Control over the method of consignment 167 The extension of general license procedure 168 Results of relaxation KJS Relaxation of enemy trade restrictions 170-17!) Relaxation of control over enemy persons not resident in enemy ter- ritory 170 The armistice and the enemy trading lists 17(i Revision of the lists for the northern neutrals 171 The Latin-American lists 171. Policy of the War Trade Board 171 Modifications in practice 171 The revised list of April 4 172 Suspension of all enemy trading lists April 2'.) 17:; Relaxation of restrictions on trade with enemy and ally of enemy territory 1"'> The liberated regions l'i^3 American policy 1"'' Alsace-Lorraine, Syria, Palestine, Mesopotamia, and the occupied parts of Austria 1J4 The Superior Llockade Council I'i'-t Czeeho-Slovakia and aiediterranean, Black and Red Sea ports— 175 The Baltic ports IJ'; The occupied Rhine territory and Luxemburg 17i> Unoccupied Germany ^. l'^| Relaxation of restrictions imposed for conservation of tonnage lS()-l.Jo Removal of items on lists of restricted imports .— 1^" Improved tonnage situation i'^" Tonnage released by the Army ^j^'' Increased tonnage in the trades 1='^ Resume of relaxation of import restrictions 18^ Partial relaxation where tonnage was available 183 Total removal of restrictions iSo First period: Restrictions removed because of favornble 183 tonnage situation ^^'^ Second period: Removal of restrictions delayed until certain questions were settled lS-1 Third period: Restrictions not removed until more than three months after the signing of the armistice 1^^4 Effect upon imports of the removal of import restrictions lb-_| Tapioca -.j^'-; Licorice root ^o<^ Crude rubber , o|^ Relaxation of bunker and other regulations ^^,_, Vovages in the war zone '^,^ AVaiver of guarantee to return ' j^^ Ocean shipping preferences -. Extension in use of "time licenses 1^193-197 Fulflllment of definite obligations -.^^^ -^^^ Statement of the problem -jr,;. ESo^ts'stm SSr^ero7coSron^lii^ m;nSs"Ster ll^^^ ^^^ Transrer of'Board'"o'rganization to the Department of State i-'8 XII SYNOPSIS OF CONTENTS. Pakt y. — The Organization of the War Trade Board. Page. The executive ottice 2(ll-2(r, Work of the members of the Bonrd 201 The Contraband Committee -•»2 The ExiKirts Executive Ccjmiiiittee and the Violations Committee^- 203 The Russian Bureau ^ -W Administrative agencies 20(3-216 Bureau of Administration 206 Historical outline 20()-2()S Functional divisions of tlie bureau -OS - Accounts 208 Disbursing -10 Buildinfr and maintenance, construction and repair, tele- l)lione and telegraph 210 Cafeteria 211 Purchase and supplies . 212 Printing 212 Appointments and ]iersonn('l 212 ^\'elfal•e and social service 2i;i Housing 2i:-! Sick relief 21B Recreation 214 War Trade Board (Mub 214 Messenger service 2iri Motor and bus service 21."i Mailing 2iri Addressing, multigrapliing, and mimeographing 21-5 Reception x-oom 21.1 Fire organization 216 Division of Information 217-222 Historical summary 217 Functions 21 x Publications 21 S Distribution 220 Library service 220 General luformatioii service 221 Bureau of Branches and Custums 223-229 Establishment 223 Branch offices 22:' Work done 224 Work done through other departments of the Government 226 Closing the branch offices 22S Agencies of investigation and research 230-26:1 Bureau of Research and Statistics 23.0-2.10 The two divisions of the work 230 The Division of Researcli 2.30 The origin and functions of the Bureau of Research 2.30 The need for a group of research men 230 The first investigations 230 The evolution of the bureau 231 The functions 231 Tlie v.-irious kinds of work 231 Early work on the export conservation list - 232 The rationing of Latin-America "232 Shipping preference lists to South AuK'rica 233 Negotiating with neutrals 233 Country and cimuriodity books . 231 Special requests lor information _ 236 Studies for the Russian Bureau _ 237 Reports to other rjuvernment organizations . 237 Revision of the export conservation list 239 Reports for the peace conference 239 Other work of the Division of Research in 1919 241 Northern neutral rations 241 Reducing the export conservation list 241 Additions to the free list 241 SViSTOPSTS OF CONTEXTS. XUI Agencies of investigation and research— Continue,! Bureau of Researcli and Statistics— Continued The Division of Research— Continued. The various kinds of worlc— Continued. Pa?>;. Imports from Germany „_ •> i-> Potash ■___ "_"___ -,-, Dyestuffs ~-- — "I]]_~I_ 'I ['42 Latch linittin.u' needles ^ __ ' .140 Other German commodities _'_ 043 Removal of Import restrictions _'_ 24'j Publications '__ .7_j'.'. Sources of data and cooperation with other Government organizations _ .~,_^^ liegular official publications ^44 Data from war agencies 245 Special questionnaires to consuls __ 24.~i Cooperation with other war agencies 241; Cooperation of commodity men 240 Cooperation of country men 246 Cooperation with the Central liureau of Planninii- and Statistics '_ 247 Organization 1 247 Country and commodity groups 247 , The general office and compiling section ^ 247 The compilation of statistical data 247 Personnel 248 The Price Section (if the War Industries Board 24f( Division of T.-ibulation and Statistics 2.".0-2G."'i Need for tabulations of applications and licenses 2."i(i Functions 2."il Problems of tabulating 2.^1 Common tinit of quantity 251 Classification of commodities Destination code 2:1: Other codes 253 Import and export data 253 The service of the bureau 255 Reports and tabulations 255 Checking the use of licenses 257 Conversion and stowage factors 2.5S Special work for Shipping Board 200 Lists of exporters and importers 200 Procedure , 261 Receipt of export and import data 261 Coding 261 Punching 202 Filing of cards 202 Tabulating ■ 202 Verifying, editing, and typing 26:! Filing of documents 20:-! Volume of the work 2(54 Growth in personnel 205 Bureau of War Trade Intelligence 200-281 Creation -200 Functions -'i'i Functional organization 260 Editing and Carding Division 207 Examining Division 209 Foreign country examiners - 20i) United States examiners for exports 271 United Statt^s examiner for imports 271 Special investigations 272 Research anil Investigation Division - 274 ( "eiisnrship and ( '(Ji'rpspondence Division 270 Enemy Property Divisioii__- 277 Listing Division 270 New York office 2S0 rnsoiinel and pay roll 280 2o2 XIV SYNOPSIS OF CONTEXTS. Agencies of iuvestigation ami i-esearch — Continued Page. Consolidation witli tlie Bureau of Enemy Trade 281 Bureau of Foreign Agents 2S2--J!Sri Historical sketch 282 Functions 284 Agencies of control 286-354 Bureau of Exports 286-304 The beginning of export control 286 Functions of the bureau 287 Commodity control — conservation ; the trade advisers 287 Country control — the trade distributors 289 Development, of license procedure 291 Coordination with Customs Service 291 Coordination with Railroad Administration 293 Individual licenses and R. A. O. licenses 293 License procedure within the bureau — the work of the regis- try and issuing division 294 Violations of the regulations of the Bureau of Exports 299 Modifications of procedure following the armistice 301 Relaxation by means of RAC licenses 301 lu transit shipments 303 Simplification of procedure for individual licenses 303 Bureau of Imports 1 ^^ 305-328 Evolution of the bureau . 305 The forerunners of the bureau 305 Establishment of the bureau 305 Functions 306 Development of the import program ■ 306 First presidential proclamation requiring import licenses 306 Second presidential proclamation requiring imp(.u-t licenses 306 Established complete control over imports 307 Advantages of this control 307 List of restricted imports, No. 1 311 List of restricted imports, No. 2 311 Supplementary list — List No. 3 312 Government agencies involved in formation of the various re.strietions 313 Machinery developed for import control 313 License system 313 Acquisition of license 313 Period of validity of license 313 Partial shipments 314 Notification of license numbers to United States consuls. 314 Indorsement of bills of lading to trade organizations 315 General, or P. B. F. licenses 316 Allocation or distribution of imports 316 Cooperation with the Canadian War Trade Board 319 Violation or evasion of import i-egulations 320 Statement of applications for import licenses 822 Organization of the Bureau of Imports 323 Bureau of Transportation 32!)-34."i Evolution of the bureau 320 Functions 329 Ends attained through control over bunkers 330 Prevention of aid to the enemy 330 Blockade of Germany 330 Dealing with enemy agents :',31 Submarines and commerce raiders 331 Coaling station at Curacao 331 Fuel a,greement 333 Agreement with Spanish steamship lines 333 Transportation of enemy reservists..' 334 Ojnservation oC tonnage 334 Securing of es.sential commodities 334 ('onservation of commodities 33.5 Bunker fuel 335 Food supplies 338 Ships' stores 338 JSTcaxar-aia Ui'' UUW TENTS. XV Agencies of coutrol — Continued. Bureau of Transportation— Continued. Ends attained through control o\er bunkers — Continued. Page. Enforcement of the regiilatlons of the War Trade Board and other governmental organizations 339 Tables showing number of bunker licenses Issued 341, 342 Organization of tlie bureau 343 Bureau of Enemy Trade 346-354 Creation of 346 Purpose and powers 346 Classification and distribution of work 347 Exports and Imports Division , 347 Financial and Commercial Transactions Division 348 Patents Division 349 Relief, Transmission of Funds, and Communication Divi- sion 3.50 Tangible Assets in America Division 3.51 New York office 3.51 Selected cases showing nature of policies pursued by bureau 3.5i; Coordination of United States and allied policies on enemy trad- ing licenses 3.53 Volume of business transacted .354 Pakt VI. — Appendix. EXHIBIT I. LAWS, PEESIDENTIAL PEOCLAMATIONS, AND EXEGUTIVE ORDEKS : Section I. The espionage act, June 15, 1917 [Title VII] 357 Section II. The trading with the enemy act, October 6. 1917 [Extract] 357 Section III. Executive order of June 22, 1917 361 Section IV. Proclamation of July 9, 1917 361 Section Y. Executive order of August 21, 1917 363 Section YI. Proclamation of August 27, 1917 363 Section YII. Executive order of October 12, 1917 365 Section VIII. Proclamations of November 28, 1917 37(i Section IX. Proclamations of February 14, 1918 372 Section X. Executive order of March 3, 1919 374 Section XI. Executive order of May 12, 1919 375 Section XII. Order of the vice-chairman of the War Trade Board, .Tune 30, 1919 375 EXHIBIT II. HISTORY OF IMPORT RUI.IRGS : Section I. Articles upon which import restrictions were placed prior to April 15, 1918 376 Section II. List No. 1 of restricted Imports, effective April 15, 191S_ 37S Section III. List No. 2 of restricted Imports, effective May 14, 1918— 383 Section IV. Supplementary list. Additional articles restrlrted from time to time after May 14, 1918 38i EXHIBIT III. LIST IMPORTS CONTROLLED BY GOVERNMENT AGENCIES 394 EXHIBIT IV. LIST OF IMPORTS CONTROLLED THROUGH TRADE ASSOCIATIONS ._ 396 EXHIBIT V. IMPORTS CONTROLLED BY GOVERNMENT OPTION TO PURCHASE __- 39l EXHIBIT YI. LIST OF ALLOCATED IMPORTS 39b EXHIBIT VII. EXPORT CONSERVATION LIST ^^)^ EXHIBIT VIII. EXPORT ALLOCATION: CAUSTIC SODA QUESTIONNAIRE 'i^-~ EXHIBIT IX. APPROPRIATIONS AND EXPENDITURES : ,, ^ -, t, i Section I. Analysis of appropriations to the AVar Trade Board, fiscal years 1918 and 1919 Ta-,T~^'7^ Section II. Statement of appropriations for fiscal years 191« ana ^ ]^919 *^- Section III. Statem7nt of expenditures of tlie War Trade Board for six months' periods I>y bureaus and branch offices and 1)V classes of expenditure, and summaries 414 Section IV. Chart .showing expenditures of the War Trade Board for calendar year 1918, with distribution by class of ^^^ Section V. Graprof^SpWitures^oTAVaVTrade'Board by months to June 30, 1919 ^-" XVI SYNOPSIS OF CONTENTS. EXHIBIT X. PEESONNEL OF THE WAK TRADE BOARD : Pago. .Sectiuu I. Tables showing number of cmijloyees iu the "War Trade Board by pay-roll periods for Ihe calendar year 1918, classified by bureaus, .July 15, 1917, to .Tune 30, 1919__ 421 Section II. Graph showing total employees of War Trade Board by pay-roll periods until .Tune 30, 1919 facing 4212 Section III. Table showing number of employees iu War Trade Board and in each bureau on December 2, 1918, classi- fied by rate of compensation 423 Section IX. Complete list of personnel as of November 11, 1918, and supplementary list of all employees separated be- fore or appointed after this date 424 PART I. ESTABLISHMENT QF THE "WAR TRADE BOARD AND DELEGATION OF POWERS TO IT. lo:;.-iS4— liH- ESTABLISHMENT OF THE WAK TRADE BOARD AND DELEGATION OF POWERS TO IT. The War Trade Board was created by Executive order of the President on October 12, 1917, to control the foreign commerce of the United States during the war. The documentary history of its establishment and of the derivation of its powers covers several steps as follows: 1. THE ESPIONAGE ACT, JUNE 15, 1917. Complete power to control exports was vested in the President by Title VII of this act, section 1 of which reads : Whenever durin?; the present war the President shall find that the public safety shall so require, and shall make proclamation thereof, it shall be un- lawful to export from or ship from or take out of the United States to any country named in such proclamation any article or articles mentioned in such proclamation, except at such time or times, and under such regulations and orders, and subject to such limitations and exceptions as the President shall prescribe until otherwise ordered by the President or by Congress ; * * * 2. EXECUTIVE ORDER OP JUNE 22, 1917. By A'irtue of the authority granted to him by the espionage act, the President, on June 22, 1917, vested the administration of export con- trol in the Secretary of Commerce and established an Exports Coun- cil to formulate the policies under which this control should be ad- ministered. In this order the President directed: I hereliy vest in the Secretary of Commerce the executive' administration of all instructions issued by the President under said Title VII and of the proclamation thereunder, and the .said Secretary is hereby authorized and directed to take such measures as may be necessary to administer and execute the same and to grant or refuse export licenses thereunder, in accordance with those instructions. I hereby establish an Exports Council, to be composed of the Secretary of State, the Secretary of Agriculture, the Secretary of Commerce, and the Pood Administrator, and I hereby authorize and direct the said Exports Council, thus constituted, to formulate, for the consideration and approval of the Presi- dent, policies and make recommendations necessary to carry out the purposes of this act. In pursuance of these instructions, the Secretary of Commerce organized in the Bureau of Foreign and Domestic Commerce a Division of Export Licenses. 3. PROCLAMATION OP JULY 9, 1917. The first effective export control authorized under the espionage act was formally established on this date by the enumeration of a small list of important commodities, mainly fuel and fuel oils, food- stuffs, iron and steel, fertilizers, and arms, ammunition, and explo- sives, the export of which was prohibited except under license. With 2 KEPOKT OF THE WAB TRADE BOARD. 3 the publication of this proclamation the President issued the fol- lowing statement : rn controlling by license the export of certain indispensable commodities from_ the United States, the Government has first and chiefly in view the amelioration of the food conditions which have arisen or are likely to arise in our own country before new crops are harvested. Not only is the conservation of our prime food and fodder supplies a matter which vitally concerns our own people, but the retention of an adequate supply of raw materials is essential to our program of military and naval construction and the continuance of our necessary domestic activities. We shall, therefore, similarly sal'i'i;uard all our fundamental supplies. It is obviously the duty of the United States in liberating any surplus products over and above our own domestic needs to consider first the necessi- ties of all the nations engaged in war against the Central Empires. As to neutral nations, however, we also recognize our duty. The (^iovernment does not wish to hamper them. On the contrary, it wishes and intends by all fair and equitable means to cooperate with them in their diftlcult task of adding from our available surpluses to their own domestic supply and of meeting their pressing necessities or deficits. In considering the deficits of food supplies, the Government means only to fulfill Its obvious obligation to assure itself that neutrals are husbanding their own resources and that our supplies will not become available, either directly or indirectly, to feed the enemy. 4. EXECUTIVE ORDER OF AUGUST 21, 1917. By this order the President established the Exports Administrative Board, and transferred to it the powers theretofore vested in the Secretary of Commerce by the Executive order of June 2-2. 1917. At the same time an Exports Council was created, but its functions differed from those of the previous body of the same name, in that it was to act only in an advisory capacity, while the first council " formulated " policies. The text of this order outlining the per- sonnel and duties of these two bodies is as follows : I hereby establish an Exports Administrative Board to be composed of a rep- resentative, respectively, of the Secretary of State, the Secretary of Agriculture, the Secretary of Commerce, the Food Administrator, and the United States Shipping Board, and I hereby vest in the said Administrative Board the execu- tive administration of all instructions issued by the President under said Title VII and of the proclamations thereunder, and the said Administrative Board is hereby authorized and directed to take such measures as may be necessary to administer and execute the same and to grant or refuse export licenses thereunder, in accordance with these instructions. I hereby establish an Exports Council, to be composed of the Secretary of State, the Secretary of Agriculture, the Secretary of Commerce, the Food Administrator, and the Chairman of the Shipping Board, and I hereby au- thorize and direct the said Exports Council, thus constituted, to act in an ad- visory capacity upon such matters under this act as may be referred to them by the President or the Administrative Board. This order shall supersede the Executive order of June 22, 1917, and become effective August 27, 1917. 5. PROCLAMATION OF AUGUST 27, 1917. Upon the recommendation of the Exports Council, thus consti- tuted, that the list of commodities subject to license control be ex- tended, the President issued a second proclamation on August 27, prohibiting practically all exports to enemy territory and to the European neutrals except under license, and considerably extending the list of July 9 for other countries. Concurrently with the publica- 4 EEPOET OF THE WAE TRADE BOAED. tion of this iDroclamation the President issued the following state- ment : The purpose and effect of this proclamation is not export prohibition but merely export control. It is not tlie intention to interfere unnecessarily with our foreign trade ; but our own domestic needs must be adequately safe- guarded, and there is the added duty of meeting the necessities of all the nations at war with the Imperial German Government. After those needs are met it is our wish and intention to minister to the needs of the neutral nations as far as our resources permit. This task will be discharged without other than the very proper qualification that the liberation of our surplus products shall not be made the occasion of benefit to the enemy, either directly or indirectly. The two lists have been prepared in the interests of facility and expediency. The first list, applicable to the enemy and his allies and to the neutral coun- tries of Europe, brings \nider control practically all articles <>t commerce, while the second list, applicable to all the other countries of the world, makes only a few additions to the list of commodities controlled by the proclamation of .Tub' 9, 19] 7. It is obvious that a closer supervision and control of exports is necessary with respect to those European neutrals within the sphere of hos- tilities than is required for those countries farther removed. The establishment of those distinctions will simplify the administrative proc- esses and enable us to continue our jiollcy of minimizing the interruption of trade. * * * 6. THE TRADING WITH THE ENEMY ACT, OCTOBER 6, 1917. This statute added to the existing control over exports two others — control of imports and of enemy trade. Important portions of this law follow : Sec. 3. That it shall be unlawful— (a) For any person in the United States, except with license of the President, granted to such iierson, or to the enemy, or ally of enemy, as provided in this act, to trade or attempt to trade, either directly or indirectly, with, to, or from, or for. or on account of, or on behalf of, or for the benefit of, any other person, with knowledge or reascmable cause to believe that such othei- person is an enemy or ally of enemy, or is conducting or taking jiart in such trade, directly or in- directly, for. or on account of, or on behalf of, mder Title VTI of the espionage act and now being administered by the iOxiioi-ts Administrative Board are hereby continued, 6 KEPORT OF THE WAE TRADE BOARD. confirmed, and made applicable to the War Trade Board and all employees of the Exports Administrative Board are hereby transferred to and constituted employees of the War Trade Board in the same capacities, and said War Trade Board is hereby autliorized to exercise without interruption the powers hereto f. ire exercised bv said Exports Administrative Board. VIII. The said AVar Trade Board is hereby authorized and empowered to take all such measures as may be necessary or expedient to administer the powers hereby conferred. And I hereby vest in the War Trade Board the power conferred upon the President l)y section 5 (a) to make such rules and regula- tions, not inconsistent with law, as may be necessary and proper for the exer- cise of the powers conferred upon said Board. 8. PROCLAMATION OF NOVEMBER 28, 1917. The extensive powers given to the War Trade Board were made further effecti^•e by two proclamations of the President on Xovember liS, 1917. One extended the list of commodities subject to export con- trol for the purpose, as explained by the President, of devoting the entire resources of the country to the most vigorous prosecution of the war. " Our foreign trade in these commodities," he said, " will be affected only to the extent that control of their exportation is demanded by the duty of providing for our domestic needs and the needs of thenations at war with the Imperial German Government." The second proclamation enumerated a list of commodities, the im- portat/on of which was i^rohibited except under license. The pur- poses of this control and the problems that were to be met are well explained in a statement issued at this time by the War Trade Board : Section 11 of the trading with the enemy act conferred upon the Presi- dent a like power to control imports into the I'nited States. Such control of imports was made efteetive by the Allied Governments many montlis ago, the necessity therefor having become obvious if tlie resources of each were to be most effectively utilized for national and international demands. With the organization of the Bureau of Imports of the War Trade Board the requisite machinery has been supp'ied for increasing the importation of certain in- dispensable commodities produced abroad. The supply now coming forward to tills country is limited by reason of export embargoes imposed by foreign powers controlling the territory in which such materials originate. Such action was made necessary liecuuse of Interference with normal production, as well as the extraordinary consumption occasioned liy the war. Among notable examples of such materials may be mentioned tin, wool, rubber, ferromanganese, leather, flax, and jute. Prior to the enactment of this statute there was no governmental agency especially designated to deal with the proper officials of other Governments in order to procure the release of commodities required by the United States and which had been embargoed hy other Governments. The govoi-ninental supervi- sion of imports makes possible a more effective scheme of reciprocity and brings about a closer unity of the countries associated together in the war. Heretofore, in the ab.sence of a responsible agency with which to deal, the Allied Govern- ments were not in a position to know that all products exported by them to the United States Nvould be utilized in a manner most conducive to the success of the great common enterprise. With the extension of scope in the operations of the War Trade Board there is at hand a dependable medium through which the Allies will be enabled more effectively to express their willingness to reciprocate, by making liberal shipments of commodities much needed by this country in exchange for the vast quantities of vital supplies which are going forward to them in an unending stream. The various trades dealing In the embargoed commodities have been or are being so organized that the total requirements of each industry can be accu- rately surveyed, the nonessential uses of any material eliminated, and a sys- tem of control provided which will insure the equitable distribution of the imported commodity and its consumption in the most essential products. At ftffiP©** 9¥- tpjSB WAR TRADE BOARD. 7 into'tW«''pL°nt."'''®'', materials are permitted by foreign Goverumeuts to come inrtPv «L°ifl°l^ °''}^. ™*^^^' guaranties that they will not be reexported except hid rPPtfvv^ih .^*'^'"^*'°'''' ^^""^ ^^^^ '^^11 "°t be used in trading directly or n^nii ni^.T the enemy ; and that no purchase of any such material has been nJw 1 speculation. At present these guaranties are given to the consul or othei representative of the Allied Governments in this country, but this method ot nandling imports has resulted in some dissatisfaction on the part of Ameri- can business men affected thereby. ^iui-'i Under the authority conferred upon the President by the "trading with the enemy act the issuance of a proclamation requiring a license for the im- portation of these various articles puts into effect a plan whereby the giving of guaranties by individual parties to a foreign Government is obviated and American individuals or firms will henceforth deal directly with their' own Government in connection with their importations. TT^?'7^j5"f o* this cooperation, supervision, and control on the part of the United States Government it is believed there will be forthcoming larger quau- tities of these various commodities so essential for our successful participation in tlie war, as the allied powers are anxious to work in harmony with us to se- cure trie most advantageous distribution of the world's supply of indispensable materials, desiring only the assurance of this Government that the distribution thereof will be equitable, thereby insuring the maximum of united effectiveness against the common enemy. The placing under control of the food products and raw materials listed in the President's proclamation in regard to imports will enable a proper distribu- tion of these commodities and, where necessary, insure an equitable price, and thus serve to protect the consumer. The United States Food Administration is laying down certain regulations soverning these commodities, and tlie War Trade Board will cooperate with the Food Administration in granting import licenses freely to importers who con- form to such regulations. The "\A'ar Trade Board, conscious of the resitousibility they assume in assist- ing to accelerate and facilitate the Nation's business, are approaching this tre- mendous task in a spirit of the broadest cooperation and accommodation, the desire being to obviate obstructions and vexatious delays to the fullest possible extent. There is little doubt that all lines of business alfected will cheerfully recognize the advantages of this centralized supervision, understanding that without it the economic situation and the effeotive conduct of the war would be seriously prejudiced ; and will cooperate with the War Trade Board to attain the most equitable and, from a national point of view, the most advantageous distribution and utilization of all imported commodities. 9. PKOCLAMATIOITS OF FEBRUAKY 14, 1918. The final delegation of the powers over foreign trade conferred upon the President by the acts of June 15 and October 6, 1917, oc- curred in two proclamations on the above date, in which, respectively, all merchandise imports and exports from or to any country what- soever were subjected to license control. Tlue War Trade Board in a statement at this time explained that — The military situation and the tonnage situation have made Increasingly apparent the necessity of instituting a complete and thoroughgoing control of all our exports and imiDorts. The tranisportation of our armies to France and the maintenance of a con- tinued flow of the supplies and munitions needed to maintain them in fighting trim require the use of every ton of shipping which can possibly be devoted to these purposes. This demand must be met, and if it becomes necessary to curtail our exports or imports, these are measures which are forced upon us by the critical tonnage situation and the necessity of availing ourselves of every possi- ble means of maintaining our armies in France. The limitation of exports Is necessary also to conserve the products of this country for the use of our own people and the peoples of the nations associated with us in the war ; we must dispose of this surplus in such a way as to aid as far as possible those countries to the south which have always depended upon us ; we must also dispose of our surplus in such a way that Germany and her allies will derive no benefit O REPORT OF THE WAR TRADE BOARD. tlierefi'oiii ; and we must secure for ourselves in return shipping and supplies urgently needed. The jiromulgation of these two proclamations does not mean an embargo on exports or a prohibition of imports, but places in the hands of the President the power to regulate, which he will exercise through the War Trade Board and the Treasury Department. This power will be exercised with the single purpose of winning the Avar, and every efCort will be made to avoid unnecessary interference with our foreign trade and to impose upon our exporters and importers no restrictions except those involved in the accomplishment of definite and necessary ob,iects. PART II. THE WAR TRADE POLICY OF THE UNITED STATES AND THE FUNCTIONS OF THE WAR TRADE BOARD. THE SITUATION WHEN THE UNITED STATES ENTEEED THE WAR. When the United States declared war on Germany on April 6, 1917, it became necessarj^ to regulate and direct foreign trade for the most vigorous and effective prosecution of the war. The state- ments by the President and by the War Trade Board, quoted here- tofore, indicate the general lines of policy that were soon laid down. It was necessary adequately to safeguard domestic supplies and to meet the needs of other nations at war with Germany ; thereafter, in so far as the resources of this country permitted, the Government wished to satisfy the essential domestic needs of neutl-al countries, subject to the single qualification that the surplus commodities of America should not benefit the enemy. The movement of commodi- ties overseas in any case had to be limited by the need for transport- ing an army to France and for maintaining a continuous flow of supplies and munitions for its use. Allied Control of War Trade. SiipiiVicx to the enemy. — The entry of the United States into the war did not signalize the beginning of the control of overseas com- merce; it only added another factor, though a very important one, to existing methods of throttling the German military machine by depriving it of essential supplies and credits from foreign countries. The nations at war with the Central Powers had establishecl a block- ade of the enemy which included a surveillance of imports into the border neutrals. In the fixing of " rations " to these neutrals the Allied Governments had been guided by three principles : 1. To satisfy the home needs of the neutral countries. 2. To maintain exports of essentials from the neutrals to the Allies. 3. To prevent all exports from the neutrals to the enemy. The Allied Governments had controlled exports from the United States to the Ijorder neutrals by granting letters of assurance to American shippers who entered into agreements with them. These letters of assurance were issued by the allied authorities whenever it appeared to them that the shipments were not intended for the use of the enemy, the right being maintained to withhold such letters and to prevent the passage through the naval blockade of any ship- ments which appeared likely to come into the hands of the enemy and therefore to come within the category of contraband. The fio-ures of United States exports to the northern neutrals and to the Central Powers show, however, a greatly increased exportation to these neutrals during the years 1915 and 1916 as compared with prewar years, and a virtual cessation of exports to the Central Powers While various factors enter into the explanation of the increased ]0 KEFDTTr mr ttte war trade board. 11 imports by the neutrals, it is fair to assume, in view of the magni- tude of these increases, that many of these commodities eventually found their way into Germany. The pertinent figures of United States exports are given hereAvith (see also Chart I, page 31) : Vnited States c.rports, 1912-1918 (in millions of dolJai.'i). Year. To Norway, Sweden, Denmark, and Hol- land. To Ger- many and Austria- Himgary. Year. ToNonvay, Sweden, Denmark, and Hol- land. To Ger- many and Austria- Himgary. 1912 144.1 351.1 370.6 169. 2 11.8 1916 279.7 170 2 1.1 1913 162,1 1917 1914 187.6 330.1 1918 70.4 1915 The blockade being insufficient of itself to keep supplies out of (Terman}', the Allied Governments had been led to the negotiation of diplomatic agreements with these neutrals for the curtailment of such exports. The success of such agreements was conditioned upon the economic dependence of the neutrals upon allied nations, or upon the ability of the Allies to control imports to them from the more remote neutrals, particularly the United States. Agreements were entered into between the Allies and several of these border neutrals and an extensive machinery Avas organized for carrjdng out their purjDOses. Consignments Avere controlled by the Netherlands Overseas Trust (N. O. T.), the Societe Suisse de Surveillance Economique, the Danish ^Merchants' Guild, and by various Swedish and Norwegian associations. In some cases agreements Avere made directly Avith the neutral governments. The control of exports from the United States Avas effected through the system of " letters of assurance " issued by the British Embassy in case of shipments to NorAvay, Sweden, Holland, Greece, Denmark, Iceland, and the Faroe Islands. Agreements had been made.Avith hundreds of our firms to abide by the allied conditions of blockade and contraband, and the letters of assurance represented a notice that there Avas no objection to the shipment of these commodities through the British naval patrols. The defects of this plan of controlling neutral commerce in order to keep supplies from reaching the Central PoAvers Avere tAvo : The extent of the economic dependence of the neutrals ui)on Germany and the difficulty of controlling the commerce of the United States and of South American neutrals. The neutrals depended on Germany for many of the essentials of industrial prosperity, and the complete curtailment of these imports might have had a serious effect upon neutral sympathies or on the stability of political conditions m the neutral countries. The second defect lay in the limited right of a belligerent, under international law, to control commerce betAveen one neutral and another. Germany and A.ustria-Hungary had made ex- tensive use of economic pressure to obtain essential supplies from Switzerland, Holland, Denmark, Sweden, and Norway. An agree- ment with SAvitzerland was concluded m September, 1!)16, m which Germany undertook to supply SAvitzerland with coal, iron and steel, dves potatoes, drugs, sugar, potash, and other materials in return tor 12 REPORT OF THE WAR TRADE BOARD. cattle, dairy products, fruit, etc. Tlie German-Swiss agreement was renewed iii jNlay, 1917, and again in September of the same year. Agreements of Germany witli Holland called for Dutch meats and dairy products in return for salt, coal, wood, and cement, iron and steel, machinery, drugs, dyes, and potash. Swedish needs for coal largely furnished the basis' of demands for the export of iron ore and wood pulp, two important necessities of Germany. Agreements also existed between Germany and Denmark and with Norway. Bimli'er control. — The'original purposes of British bunker control were to make the blockade eft'ectiA'e by requiring neutral ships to call at British ports for examination and to prevent the carrying of sup- plies to commerce raiders. These purposes, however, were soon sur- passed in importance by the critical tonnage situation, and bunker supplies were used in bargaining for the Drevention of uneconomical use of tonnage and the requirement of a reasonable amount of service for the Allies. Enemy trade — the allied hlacl: lists. — The Allies had realized the belligerent value of prohibiting dealings with the enemy and had, by means of statutory or confidential black lists, attempted to prevent all commercial or financial dealings with joersons of enemy association or nationality with the view of reducing the flow of money and credits to the Central Powers and preA'enting the building up in foreign coun- tries of large credits for propaganda or large stocks of raw materials for after-the-war trade. THE WAR TRADE POLICY OF THE UNITED STATES. The basis of the jjolicy by which this Ciovernment undertook to con- trol war trade in order to defeat the Central Powers was as follows: (1) Conservation of domestic supplies for use of the United States and of the allied nations. (2) Prevention of trade, directly or indirectly, by persons in the Ignited States with, for the benefit of. or on behalf of the enemy or its agents. (3) Conservation of tonnage for the transportation of military necessities for the United States and the Allies. In other words, the sovereign right of the Government to control ex- ports was to be exercised first in the interest of maintaining an ade- ((uate supjjly of essential materials for itself and its allies: and any surplus after the satisfaction of these requirements was to be made available for domestic consumption in neutral countries, with due safeguards against their being used for the benefit of the enemy. The T"iiite(l States was prepared to limit trading of her citizens with per- sons of enemy nationality or association in neutral countries in so far as such transiictions amounted to trading with, for the benefit of, or on behalf of Germany. Furthermore, the Government was prepared to exercise control over bunker fuel and ship stores to the extent de- manded by the necessity of transporting an army to France and fur- nishing it and the Allies with supplies and nnmitions. FUNCTIONS OF THE WAR TRADE BOAJEID. • Pursuant to the general policy thus established by the Government of the United States and made effecti\e under powei-s granted by laws REPORT OF THE WAR TRADE BOARD. 13 of Congress and delegated by the President, the War Trade Board directed its efforts to the attainment of four great purposes : (1) Commercial isolation of the enemy : By control over, United States exports to the border neutral countries in accordance with the general policy established. (2) Financial isolation of the enemy: By control of enemy stocks in the United States and of enemy credit established through trading with United States citizens. (3) Obtaining essential supplies: By conservation of domestic supplies through export re- strictions and by obtaining essential imports from the Allies and from neutrals. (4) Conservation of ocean tonnage: By acquisition of shipping bunker control, import restric- tions, and by priority in export shipments. Other uses were found for the administrative organization of the Board and it entered in many ways into the development of our greater war program, but these are the essential and important fields in which the work of the Board contributed to the defeat of the enemv- They will be considered in detail. PART III. THE EXECUTION OF THE FUNCTIONS OF THE WAR TRADE BOARD. ]5 I. THE COMMERCIAL ISOLATION OF THE ENEMY. THE CONTROL OF EXPORTS BY LICENSE. Blockade of the Border Neutrals. The innlyargo on. e.cportfi to neutrals. — The experience of the Allies before the entry of the United States into the -^Tar had shown that the chief points of foreign contact for the Central Powers were the northern neutral countries and Switzerland. From them the enemy was receiving large c|uantities of their domestic produce and they were acting as the medium for the imiDiortation into Germany of supplies from more remote parts of the world. England's policy of blockade had been directed at the reduction of imports into the northern neu- trals and similarly France had exercised control over Swiss imports. Following the formulation of a policy with respect to war trade, which was in substance the use of home products first to supply our- selves and the allied nations and then to satisfy the domestic needs of neutrals, subject only to the reservation that they should not be used to benefit the enemy, the plan of controlling exports by license and their restriction in accordance with the above xjolicy was begun. As mentioned heretofore, the espionage act of June 15, 1917, gave the President power to control export, and on July 9 following he placed a small group of important commodities under license control. This group included mainly foodstuifs, fuels, iron and steel, fertilizers, and munitions of war. The list was extended on August 27. The importance of exportation to the European neutrals was recognized in the latter proclamation which classed exports to enemy territories and to these European neutrals separately from all others. The note to the northern neutrals. — The announcement of the policy of the United States with respect to exports to these neutrals occurred prior to the proclamation of August 27, when on July 24, 1917, the Exports Council presented to the rei^resentatives of Holland, Sweden, Denmark, and Xoi'Avay an identical note outlining the aid which this (Tovernment was in a position to offer in furnishing them with foodstuffs and other commodities. The note called attention to the world shortajze of foodstuffs and materials consequent upon de- struction by war, the shortage of man power, and poor harvests; explained the obhgation of the United States to furnish supplies and provisions to the Allies; and expressed the deep interest of the United States in increasing its production and reducing its consump- tion in order further to augment its exportable surplus. The United States stood ready, the note declared, to put forth greater effort to increase the well-being of neutral nations in whose behalf she had entered the world war, but felt that it was only fair to ask in return services of equal value in promoting tlie well-being of the 16 BEPORT OF THE WAR TRADE BOARD. 17 people of the United States. It therefore suggested to the several Governments — (1) A thoroughgoing conservation program, including increase in production, decrease in excess consumption, and the elimination of waste. (2) Determination of minimum deficiency in food values on the basis of carbohydrates, fats, and proteins. (3) A return in equivalent service for imports from the United States. (4) A guaranty that American foodstuffs or other materials V7ould not directly or indirectly reach Germany through the neutral countries. (Conversion to the enemy's use lay not alone, it said, in direct transmission of the original American commodities, but also in conversion into other commodities exported to Germany or used in manufacture of such commodities or substitution directly or indirectly for products of the neutral countries which might be re- leased for exportation to Germany. ) (5) The necessity, in view of the large depletion of the food resources of the United States, from the 1916 harvest, of instant reduction in the export of supplies to the barest minimum necessitated by the situation of existing stocks in the neutral countries. The note closed with a warning that, pending a mutual agreement on the above basis, any exports of food, supplies of any nature from any of these countries to Germanj^ would reduce the amount of food- stuffs which would be supplied them by the United States. Thus began the policy of embargo on all exports to the northern neutrals, a policy that continued until, in cooperation with the Allies and these neutral countries, a coordinated system had been worked out that furnished these neutrals with necessary supplies and j^et protected vital interests of the United States. It is of interest to note in this connection the emphasis placed upon the three methods of controlling neutral trade and the change in em- phasis brought about by the entry of the United States into the war. The Allies had exercised their control — (1) By belligerent right : They held that their belligerent rights included the right to stop on the high seas products which could be manu- factured in neutral countries into goods useful to and destined for the enemy. Great Britain had built up an extensive machinery in the United States for controlling exports to these countries by means of agreements with exporters, letters of assurance covering acceptable exports, and visit and search of ships at Halifax ; and yet statistics show that from 1914 to 1917 the United States sent ab- normal quantities of goods to these countries. (2) By agreement : Agreements with neutral countries or with the importers therein had succeeded in preventing many imports which would release similar native products for export to the enemy. 103584—20 3 18 EEPOET OP THE WAR TRADE BOARD. (3) By sovereign right : The sovereign right of any country to control its own pro- ducts was sufficient to meet the situation as respects the trade of that country with the neutrals in question. But this method was of limited efficacy prior to the entry of the United States into the war because the United States was the principal source of supply for the neutrals. With our declaration of war this situation was transformed, and our establishment of a complete embargo pending agree- ments and guaranty, reinforced by existing allied embar- goes, brought about a commercial isolation of the enemy that undoubtedly did much to bring about the final success- ful issue of the war. The mmMnery of the Hochade. — The control established by the cooperation of the United States and the European Allies for exports to the northern neutrals was vested in three types of agencies — an export control organization in each allied country (for example, the War Trade Board in the United States) , a central interallied or- ganization in London for the purpose of coordinating the policies of the United States and the Allied Governments of Great Britain, France, and Italy, and local joint committees of allied and associated representatives in each of the several neutral countries. The license control over United States exports has already been described. The central organization in London was based largely on the machinery in existence prior to the association of the United States with the Allies, but was now made representative of all. It was called the Allied Blockade Committee, or the A. B. C. Its mem- bership included representatives of the United States, Great Britain, France, and Italy. ^ Its powers were supervisory and advisory and it possessed no final authority to accept or reject applications for export licenses, this authority being reserved in each instance by the export control organizations of the respective Governments, which considered the recommendations of the Allied Blockade Committee. The actual work of coordinating allied policy on border neutral imports was placed in the hands of the Contraband Committee, War Trade Intelligence Department (W. T. I. D.), and War Trade Sta- tistical Department (W. T. S. D.). The W. T. I. D. reported on the character of the consignee ; the W. T. S. D. centralized the statistical control of rations to neutrals; and the Contraband Committee con- sidered the accumulated evidence and recorded its opinion. The joint committees in neutral countries were called Interallied Trade Committees (I. A. T. C). They were composed of representa- tives of the four associated nations and their duties were, in general, to supervise the operation of domestic control organizations, and to keep the Associated Governments advised, through the A. B. C, of the economic conditions of the countries in which they were located. Adequate domestic control associations had existed prior to this time in Holland, Norway, and Denmark ; that in Sweden had been entirely unsatisfactory, and in Iceland and the Faroe Islands there had been no such agencies whatsoever. 1 At a later date a representative of Belgium was added. BEPOET OF THE WAR TRADE BOARD. 19' With the establishment of this organization for control the pro- cedure for the purchase of a commodity in an allied country was as follows (illustrating by the United States) : (1) Buyer secures an import permit from the domestic import organization. (2) Fact of issue reported by I. A. T. C. to A. B. C. and to War Trade Board in Washington. (3) Seller then applies for export license, giving import permit number. (4) War Trade Board passes on : a. Character of consignor. b. Policy of conservation, etc. (5^ War Trade Board then refers application to A. B. C. (6) A. B. C. passes upon : a. Rationing. b. Consignee and ultimate purchaser, etc. (7) War Trade Board representative in London then cables recommendation of A. B. C. The War Trade Board may overrule recommendation of A. B. C. after exchange of views. Reciprocally Great Britain- adopts similar procedure, and United States representative on the A. B. C. may scrutinize British applications to ex- port and no license is issued over his objection without exchange of views with the United States. (8) License issued or refused by the War Trade Board. The development of this extensive blockade machinery took place in the interim between the announcement of the policy with reference to the northern neutrals and the negotiation of agreements whereby they gave the guaranties demanded. It became effective in the early part of 1918. The control of exports to Switzerland was somewhat different from the northern neutrals because of the fact that all Swiss imports must pass through France, and France therefore has a peculiar interest in any commercial transaction that occurred. After the signing of the American-Swiss memorandum in December, 191Y, the War Trade Board appointed a representative on the Commission Internationale de Contingents (C. I. C.) sitting in Paris. This commission there- after contained delegates from the United States, Great Britain^ France, and Italy. The procedure established for a Swiss import transaction was as follows : (1) Importer secures an import certificate from the Swiss import organization (Societe Suisse de Surveillance Economique, orS. S. S.). (2) The S. S. S. submits copies of the certificate to the United States representative on C. I. C. and cables Swiss Legation in Washington number of permit, consignor, and other details. (3) War Trade Board representative on C. I. C. cables recom- mendation of C. I. C. in the War Trade Board. (4) Exporter presents application for export license to Swiss Le^ gation and it submits same to War Trade Board. (5) If War Trade Board wishes to reconsider recommendation of C. I. C. it cables C. I. C, and reconsideration is granted^ (6) License issued or refused by the War Trade Board. 20 REPORT OF THE \VAR TRADE BOARD. AGKEEMENTS WITH THE BOBDEE. NETITBALS. The agreements referred to, to which the War Trade Board became a party, are as follows : Country. Date of agree- ment. Date effective. Dee. 5,1917 May 29,1918 Apr. 30,1918 Sept. 18,1918 Nov. 25,1918 Oct. 1, 1917, to Sept. 30, 1918. June 1, 1918, for duration of war. Norway May 10, 1918, for duration of war. Denmark Holland Oct. 3, 1918, for duration of war. Nov. 25, 1918, lor one year. 1 A later agreement was signed Jan. 22, 1919. The agreeiiients with Switzerland, Xorway, and Denmark were con- cluded by the War Trade Board alone and recognized existing agree- ments between these countries and the Goveriunents associated with the United States. Those with Sweden and Holland were consum- mated by the major allies and adhered to by the War Trade Board. Terms on which the Embargo was Lifted. GUARANTIES AGAINST EEEXPOETS. The basis on which the United States and the Allied Governments negotiated these agreements with the several neutral countries, as forecasted in the note of July 24, 1&17 (see p. 16), was a guaranty by the neutrals against reexport to the Central Powers of the com- modities furnished to the neutrals and promises of restriction or prohibition on the export of similar domestic products. It was made clear in each agreement that the commodities furnished the neutrals by the United States or the Allies were for domestic con- sumption and were based on the estimated total import needs of each country. The extent to which the agreements guaranteed such use of United States or allied exports is well illustrated in the case of Norway: The importation into Norway of the articles described in the said annexed schedules is for consumption in Norway and the quantities thereof which shall be licensed (notwithstanding the aggregate quantities set forth in the schedules annexed) shall at all time.s be determined by the actual internal requirements of Norway, with due regard to the existing stocks and to the importation into Norway from countries where the license of the Board is not required of like articles, or articles capable of use as substitutes for those described in the annexed schedules. No article imported into Norway under the provisions hereof shall be ex- ported by Norway to other than " allied " destination, nor shall any article released by such importation be exported to other than " allied " destination. No articles, including those mentioned in article 3 of this agreement, which are obtained, grown or produced, in whole or in part, by the use 'of any implements, machines, machinery, coal, gasoline, kerosene, oils lubricants or other auxiliaries or articles hereafter imported from the United States or hereafter imported from any country associated with the United States in the war, or whose importation shall be facilitated by the War Trade Board's license for bunker coal and ship's stores, or by the licence or authority of any country associated -nath the United States in the war, shall be directly or indirectly exported from Norway to any country or ally of any country with which the United States is at war. * * * ■> j REPORT OF THE WAR TRADE BOARD. 21 This same gviaranty was like\Tise given with reference to Nor- wegian exports to neutral countries, unless agreements were procured from such neutral coimtries, with proper security for the enforce- ment thereof, that such commodities so expoited should not be directly or indirectly reexported lo the Central Powers or should not release other commodities to be exported to the Central Powers. KESTEICTIOXS AND PROHIBITIONS ON DOMESTIC EXPORTS TO CENTRAL POWERS. The important object which the United States and the Allied Gov- ernments had in mind in placing the embargo on exports to the border neutrals and in negotiating rationing agreements with them was the restriction or prohibition of exports from these countries to Ger- many of essential war materials, including foodstuffs and military supplies. The extent of the success or failure of any policy of economic pressure depended, therefore, on the relative dependence of the neutrals on the Associated Governments and on the Central Pow- ers for the essentials of national existence ; and, reciprocally, the de- pendence of the Associated Governments and the Central Powers on the neutrals for war materials, including foodstuffs. The situation of the four northern neutrals in this respect was as follows : Denmark was largely self-supporting so far as foodstuffs was concerned — in fact, an exporter. Her need for fodder and feed- stuffs for horses and meat animals was great and she must im- port largely from the Allies and the United States or it would be necessary to slaughter her herds. In this case her exports of meat products to the Central Empires would in all probability increase. Furthermore, her imports of fuel oils and lubricants were important and the Unitecl States was the chief source of supply. Holland depended to a considerable extent on imports for her requirements of cereals, feedstuffs, textiles, rubber,, fuel oils, lubricating oils, coal, and iron, and the loss of American exports would be serious. Norway depended on the associated nations for foodstuffs, min- eral oils, and other commodities of lesser importance; she also supplied Germany with very important essentials, such as nickel, molybdenum, chrome, pyrites, fish and fish products. The stopping of these supplies had been an essential desideratum of the Allies. Sweden was probably in the strongest position of the northern neutrals. She was largely self-supporting so far as foodstuffs were concerned. Her most vulnerable point was perhaps her need for coal and mineral oils. On the other hand, certain grades of Swedish iron and steel were greatly needed by the Allies. Germany depended on Sweden as her main outside source of supply for iron ore, and Swedish wood-pulp imports enabled her to conserve her supplies of sulphuric acid in the manufacture of domestic wood pulp. The cutting off of this import might easily have a significant bearing on the duration of the war. 22 REPORT OF THE WAR TRADE BOARD. The effectiveness of the policy of the United States and the Allies in bringing about these results is shown in the following data taken from the agreements : Danish exports permitted annually to Central Powers. "Butter I Bacon Eggs Not to exceed tons.. 24, 200 Milk Cheese .' Denmark under obligation to export first to Sweden and Norway : 30 per cent of export surplus of butter, bacon, milk, cheese. 25 per cent of export surplus of eggs. Not over 50 per cent of remaining export surplus to Central Powers. Not to be greater than exports to Great Britain if Great Britain elects in advance to purchase. Fish and fish products, not to exceed tons — 25, 000 Cattle (not to interfere with Danish exports to Norway and Sweden monthly of at least 35 per cent of her exportable surplus of cattle) head__ 226, 000 Eorses do 30,000 Hides None.' Spirits, liquors, beer, etc hectoliters 37, 649 Limestone tons 40, 382 'Gravel, paving stones, flints, granite do 11, 113 Cabbage do 15y 000 Birds' eggs score 15, 300 All other, as specified tons 15, 016 -Copper, lead, and other metals (subject to return within 60 days of manufactured goods containing metals of the same amounts) tons 200 Dutch exports to Central Potcers prohiiited. il) All foodstuffs, fertilizers, and fodders, including: Animals, dead or alive, and products thereof. Sugar. Hay and straw. Seeds, except as agreed. Manure. •(2) Technical fats. (S) Bone grease or soap (except hard soap, 130 tons per month). •(4) Bulbs (except for certain horticultural purposes). (5) Leather hides and skins. Limited Dutch exports permitted to Central Powers. <1) OfCals tons per year__ 1,000 <2) Seeds and flax (to be determined). (3) Return of iron and steel or iron and steel scrap imported from Central Powers. <4) Milk and milk products (not to exceed 17 per cent of total ex- port) ton.s__ 4,400 (5) Vegetables and fruit (to be determined). <6) Fish and fish products subject to separate fishery agreement. Restrictions on Norioegian exports to the Central Powers or their Allies. [Export allowed per annum.] Foodstuffs : Tons. Fish and fish products 48 OOO All others ~ ZIZIZZ None. Calcium carbide ~ _~~ ~ -yQ qqq 1, 000 Aluminum " 40 Copper, crude, refined, or pyrites cinders (but only as compensation for imports of copper goods within 60 days) 200 Domestic animals or their products . Bismuth Nickel Wolfram Chrome ore . Pyrites Molybdenum ) None. Nitrates (except calcium nitrate above) Mica Tin ^ Antimony Manganese Titanium Articles not mentioned above may be exported to the Central Pov^ers in quantities not to exceed those quantities exported to said countries from Nor- way in 1917, as given in Schedule H, thus : Metric tons. Downs and skins 218. 619 Waste of paper 314. 395 Granite 2, 531. 020 Feldspar 1- 260. 000 Seaweed and seaweed ashes 930. 300 Iron ore 133, 614. 000 Zinc 4, 467. 000 All other specified 912. 424 Articles not included in the above lists shall not be exported from Norway to the Central Powers, except that, if necessity be shown therefor, such exports will be sympathetically considered, but shall not be made without prior written agreement with the War Trade Board. Prohibition on Siredish exports to Central Powers and their allies. (1) All rationed articles, their products and " articles similaires." (2) All foodstuifs and feeding stufts (except cranberries). (3) All skins, hides, leather, leather manufactures, and tannmg materials. (4) All wool and woolen manufactures, waste and yarn, cotton, cotton waste, varn and manufactures ; textiles made of paper. (3) All ores, including pyrites, and metals, including steel contammg ferro- alloys except iron ore (as specified later), steel containing not over 1 per cent of manganese, pig iron containing Swedish manganese. (6) Sulphuric, nitric, hydrochloric acids; sulphates «* copper and nickel Export of acetic acid and acetates, chlorates and perchlorates to Central Powers and their allies not to exceed in any quarter quantity exported in corresponding quarter of 1917. (7) Carbide, in excess of 1,500 tons per quarter ; cyanamide. Swedish exports prohibited, except to United States and the Allies. (1) Ferroalloys and steel-hardening materials. ^""'"M^'i^bdenum ore (of Swedish origin) to Central Powers prior to October 25, 1918 -.l—rT-rr^^lH No other exports whatever except to the United btates and Allies. , . No imports into Sweden in any form durmg war. Ferrosilicon, including ferrosilicon manganese: To Central Powers and allies (per quarter) tons- 1, 750 To other destinations (per q uarter) do — ow 24 REPORT OF THE WAR TRADE BOARD. (2) Mica, micanite, and mica manufactures. (3) Tin plates and terneplates. (4) Cork, its manufactures and waste. (5) Rosin, turpentine, wood pitcli, wood tar, wood-tar oil, and resin oil. Except — Wood pitch jrpQ Central Powers and their allies (per w""^ <- ■"-■i"— quarter) tons__ 2, 000 Wood-tar oil J ^ Resin oil, to Central Powers and their allies (per quar- ter) tons 750 Wood pitch I To Holland and Denmark In quarterly quantities Wood tar ( not to exceed 1917 quantities. Siredish exports to the Central Poivers and their allies permitted. (1) Small quantities of copper, brass, tin, aluminum, rubber, and rosin in manufactured articles — subject to special conditions. (2) Tin, lead, nickel, aluminum, copper, brass, and rubber in com- pensation of like quantities imported from Central Powers in manufactured form. (3) Zinc — 25 tons per quarter for manufacture and return to Sweden. Tons per annum. (4) Iron ore (total exports permitted to all destinations) 6,000,000 Associated Governments will purchase tons — 2, 000, 000 Associated Governments may purchase (tons addi- tional) 500,000 ( Sweden to give facilities for storage to all pur- chases by Associated Governments if desired.) To Central Powers and their allies tons 3, 500, 000 (5) Wood pulp to Central Powers and their allies per year: Tons. Sulphite pulp 89, 000 Sulphate pulp 88, 000 Paper and products thereof 59,000 Restrictions on Swiss exports to Central Powers. (1) Schedule B— Grains: Imports of rations shall not operate to release like articles of Swiss origin or in Swiss stocks for export to Central Powers. (2) Schedule C — Mineral oils, etc. : None of the commodities in this schedule shall be used in manufacture of arms, ammunition, explosives, and war material for export to enemy. (3) Schedule E— Leather : All exports to Central Powers prohiMted of leather or rubber, shoes, boots, slippers and parts thereof, soles, uppers, harness and parts thereof, saddles and parts thereof, and raw hides and prepared leather. (4) Schedule F— Cotton : Exports to Central Powers prohibited of all American cotton, including raw cotton, linters, waste, and all cotton goods and fabrics containing cotton, and of all goods and articles manufactured from cotton, with the following exceptions, for which special control machinery is established : Metric tons. Embroideries -y 250 Cotton fabrics ' 5Q0 : Knitted fabrics 200 LOCAL CONTEOL ORGANIZATIONS. In each case the United States and its associates insisted that there should be organized, in the neutral country, the requisite ma- RBPORTTTTF THE WAR TRADE BOARD. 25 chinery to insure that the guaranties given would be adhered to, and the agreements have in most instances contained provisions whereby an accredited representative of the War Trade Board and of the Allied Governments should have complete access to all in- formation, including, if necessary, books and documents, and should obtain full particulars regarding any restriction or prohibition. In two countries, Switzerland and Holland, this control was exer- cised by a single organization for the entire country. All shipments to Switzerland were authorized by and consigned to and made sub- ject to the rules and statutes of the Societe Suisse de Surveillance Economique, known briefly as the S. S. S. Imports into Holland, except those to the Netherlands Government, were consigned to the Netherlands Overseas Trust, or N. O. T., as it was called. In Den- mark import certificates were required from the Merchants' Guild of Copenhagen or the Danish Chamber of Manufactures. Consign- ments could be made to them or directly to the individual or firm securing the import permit. In Norway and Sweden a number of import associations were formed, each dealing with a special list of commodities. The list of these associations was as follows : NORWEGIAN IMPORT ASSOCIATIONS. Oil & Color Merchants' Association. Norwegian Paper Makers' Association. Norwegian Soap Makers' Association. Norwegian Wholesale Provision Mer- Norwegian Wholesale Grocers' Asso- chants' Association. elation. Royal Norwegian Automobile Club. Norwegian National Association of Norwegian Cycle Tire Importers As- Grain and Flour Importers. sociation. Norwegian Millers' Association. Lubricating Oil Merchants' Associa- Norwegian Chocolate Manufacturers' tion. Association. Norwegian Tanners' Association. Norwegian Cotton Mills Association. Cork Manufacturers' Import Associa- Norwegian Margarine Manufacturers' tion. Association. SWEDISH IMPORT ASSOCIATIONS. Wool Import Association. Margarine Manufacturers' Raw Mate- Cotton Import Association. rial Import Association. Jute & Hemp Manufacturers' Import Wine & Spirits Import Association. Association Tobacco Import Association. Textile Import Association. Chemical Industries Import Associa- Corkwood Import Association. tion. Leather Trade Import Association. Rubber Import Association. Metal Import Association. Oil Manufacturers' Import Associa- Raw Phosphate Import Association. tion. . , „ Brush Makers' and Horsehair Spin- Swedish Medical Board. ners' Raw Material Import Associa- Swedish Victualing Commission. ^-iojj . Lubricating Oil Import Association. An importer in either of these countries desiring to import a com- modity controlled by an association was required to give to the asso- ciation an individual guaranty, and breach of it entailed the lerj ot heavy penalties and in some countries constituted a criminal ottense. The importer was required to obtain an import certihcate trom the proper association and the shipment was consigned to the latter, but it was necessary to name the purchaser. If the commodity was noc one so controlled, the importer in Sweden was required to obtam a certificate from the Statens Handelskommission, but the goods might be consigned directly to him; the Norwegian importer, in a like case. 26 KEPOET OF THE WAR TRADE BOARD. gave a guaranty certified by the Norwegian Finance Department and further certified by an American consul in Norway. Most of this control machinery existed in the several countries be- fore the United States entered the war and had been utilized in the distribution of controlled imports. Belaxation of the Embargo on Nonessentials. By the middle of the winter 1917-18 it became apparent that the Germans were taking advantage of the policy of strict embargo of the northern neutrals, and German agents were actively soliciting trade in a number of commodities of nonmilitary value but in which the interests of the Allies had in the past predominated. They were using their exports of these nonessentials, moreover, to obtain from the neutrals essential war materials, such as foodstuffs and metals, and were thereby maintaining German exchange. The need for a relaxation of the embargo became apparent for the double purpose of maintaining allied exchange and of preventing the creation of German monopolies. The first list of nonessential commodities was announced February 20, 1918, for export to Holland and Sweden. This followed very shortly after the signature of a " modus vivendi " by each of those countries. The list was enlarged on April 20, and on May 22 was extended to Denmark. Inasmuch as the rationing agreement was signed by Norway on April 30, the proposed extension of the non- essential list to Norway was unnecessary. The Swedish agreement on May 29 removed the need for further consideration of a special list for Sweden. The last list for Denmark was published on August 21, 1918 (Danish agreement, Sept. 18), and the last list for Holland on October 25, 1918 (Dutch agreement, Nov. 25). The commodities contained in these nonessential lists were naturally articles of high value and nonmilitary use. The following list indi- cates their character : Adding and calculating machines. Hats. Automobiles (passenger). Household furnishings. Athletic goods not containing rubber Laces, handmade. and leather. Ledgers and similar stationery. Bicycles and motor cycles. Machinery. Carpets, oriental, of high value. Musical instruments. Cash registers. Office furniture, equipment, supplies. China. Oil paintings. China clay. Phonographs and records. Clocks. Photographic goods. Cutlery. Pianos. Drugs (about 35 kinds). Precious stones, real and imitation. Dyes and dyestufCs. Silk manufactures, as specified. Earthenware. Salt. Feathers, of high value. Sanitary ware. Films, cinema. Scales and balances. Flowers, artificial. Toilet preparations. TTountaln pens. Typewriters. Furs, of high value. Toys. ■Glassware. Watches. Guilders' hardware of iron and steel. Wines. REPORT OF THE WAR TRADE BOARD. 27 Neutral Rations. nr.J^'/l*"'"-'' ^'''' *^^ guaranty of the neutrals not to reexport allied o^Lt ^''T"" ^T"^' °^*^'"" products, and to restrict or prohibit exports of domestic products, and in accordance with the promise Tult S4 i'qiY f>?"?f^/^™' 5 -i a = < 3 2 = fei lili O. *- UJ So u". ^ £^ UJ U OtC »»-^^ ^^^^ ,i^>^y§^ ^^^P ^^^ '^''^%t^'»^S$ §tJ^^ iS$^?^SS~^;?§»^§§»j '- ^o frt <^ (T PJ ■ made in January and Feburary, 1918, and wheat flour was shipped in relatively smal quantities throughout 1918. Sugar, for which Sif ."i 1^017 ""' f^ ^r^' "" ',°"^°^ '^^ ^^PPly in 1916 and the first halt of 1917, was almost completely stopped until September, 1918. The embargo on bacon, lard, and oleo oil was likewise almost com- plete from the middle of 1917 to the end of 1918. The NorweSl agreement was signed April 30, 1918, and the failure to export these xvjiirurtx UJ!^ IJiLJi^VAirTEEADE BOAED. sr commodities thereafter was due. not to any further embargo, but to an absohite shortage of supplies in the United States. INIineral oils and cotton probably show better than any other commodity in the list the real results of the embargo. Cotton exports to Norway were stopped completely after July, 1917, and mineral oils nearly so, but with the consummation of the agreement and the fixing of guar- anties contained therein mineral oil imports began at once, and cot- ton imports, while not so important to Norway as mineral oils, were- resumed on a normal basis in August. Exports from Border Neutrals to the Central Powers. While the statistics given above bear directly on the question of the effectiveness of our embargo policy in shuttmg off supplies to- SB REPORT OF THE WAR TRADE BOARD. the neutrals until we had received assurances from them that our exports would not be used for the advantage of the enemy, they do not bear so directly on the more important question — whether these guaranties were really effective; in other words, whether exports of essential supplies from the neutrals to Germany were actually re- duced. This latter question, moreover, is more difficult to answer with definiteness because of the scarcity of trustworthy statistics. The figures given below are, in some cases, drawn from official sources, in others are estimates ; they can probably be accepted safely as indications in those instances where they show an unmistakable tendency toward certain conclusions. REPORT OP THE WAR TRADE BOARD. 39 ov. Zi o Q IB o ■I- g g^ !~~'~ \ 1 . .' . :j ^ ( .W fe?5$j$a CO O ai X l+l: vi a t^^i-^^i^^ ^ ^ r7~ — r rj s" r ^^^^^P rt « CO HOLLAND. The figures showing total value of Dutch exports to Germany show a decided drop for the six months' period ending June, 1918, as compared with previous years : Year. Value. Year. Value. Florins. 1,463,807,347 1,125,578,525 714,210,625 1916 Florins. 585,000,000 205, 211, 775 1914 1917 38,985,308 Note.— Figures for 1916 are estimates. Figures for 1917 and 1918 subject to slight revision. 40 REPORT OF THE WAR TRADE BOARD. The quantities exported of those commodities that represent Ger- many's dependence upon Holland, however, are much more in- structive. E.^^^ ^ f- -.--| ^^^^^^ ^?»»»gggg;^ - >>NS-^^S>'^^ ^ l^^^-^y^JS::N?^^^^;^^K^^J;j:g^j^^§^ - ^^-^---------.-^^ fs»»S^^?i^:y?^yi^i^^ I V;^S?^SSS?^?»^?^SS:^^-:?^»^:^;i;^»y;^^|^^ I SS?^» »j%^|^^ j>^»»»<<^?$? ' '^^^^^^^'^>Vt»^^^^ ty§^?§^^§»§???f t-^^^^^>^y>^i."';^j^';^j^^^ ^ ^,;^^^^^^;^ l^^^^^:^^ -^ ^^ ^>:-:-i^^^- ^ ^^! $j~;y§$§§ -" 1 Kvv4:m||||i li■V ?^:»^»»^^^:^^^■^^»?^$»^ i H?;r^':.-;;^>^-NNN^»-^ : o k^ z: Solland''s exports of certain connnodities to Oermany. [Metric tons, except cattle, "Which is number.] Year. Cereals. Potatoes and potato meal. Butter. Cheese. Marga- rine. Fresh meats. Cattle. Grain. Flour. 4,063,159 2,212,112 38,675 4,849 10,001 250 114, 173 62,851 101 186, 523 3,69,694 283,566 179, 669 134,608 338 19,041 19,661 36.675 31; 413 17,730 16, 126 21, 465 63,292 76,377 29,180 6,527 19,320 17, 754 40, 556 3,309 1,373 20,428 10,231 69, 418 30,163 2,968 Number. 6,681 92,600 24,816 1914 1916 267 102 981 January-June, 1918. 1 857 ' Includes 1,033 tons to Austria-Hungary. EEPOET OF THE WAR TEADE BOAED. 41 Significant reductions are shown by this table in cereal grains^ potatoes and potato meal, butter, cheese, margarine, and fresh meats. It must be remembered that all these figures are applicable to a period before Holland signed an agreement with the Allied Governments (agreement signed Nov. 25, 1918), and the reductions m exports to the Central Powers must therefore be attributed to a shortage of sup- plies created by the allied embargo. It was expected that the plac- ing of an embargo on feedstuffs to Holland might cause a reduction of herds and increase for a time the exports of cattle or meat to the Central Empires. The slight increase in numbers of cattle exported indicates that this happened, though in no significant degree. 42 REPORT OF THE WAR TRADE BOARD. .^^^^5!i ^-^-^ ^^^^^"""n mg^i I^^VV^V^->^\^^^^>'^^-^^^^^^ j- ^>--^-i^:^::^:^iS^ :"i 10) :. *■ I0-. »j r^. ^ ^"^^ m m- ^ vvv^^^^^^^: g^ ^ it^^»^>^5^^>x^ ^^^^^^^ , ^^-^-^^^-^^ ^^ ^^^^^S, ^^a ^^« ^^^« ^^^^ ■^^^ ss« NORWAT. Available data on Norwegian exports to Germany, while somewhat fragmentary, permit an estimate of the eifectiveness of the agreement entered into with the War Trade Board on April 30, 1918. The figures given cover four of the first five complete months fol- lowing the effective date of the agreement, data for September being lacking. Com]3arison of total exports for these four months with annual exports allowed under the agreement shows that in nearly every case the actual figures are well within one-third of the annual allowance, the only exceptions being granite, downs, and skins, and the miscellaneous group. This is indicative of very effective results from the Norwegian agreement. xviii-wiij. ur xiiji WAJK, xitiiDE BOABD. 43 fci:^:^;^:^^ .t^^^§^ g S ^^S ^^^^^^^'^•^^'t^^^^"' ^^^5! ^ ^^^^ ^^^^^^^^^^§ I r'~ 1S>^ 2 ^ ^N-.NN-.-^-^-.-.-.-^^'^Vx^g;.^^^^^ ^ ^ en a ■3 ^ ^^^ ^^^^^^ g^ ^^^ ^^^^^s B k:s^^^»;^»^^ K^^i-^ ^ ^^SSS<1 1^^^ ^^^^^^ ^^^^^^ i , J b^^^;^^ y3 §3 S s ^^ ^^^^^^2 i^:-^\^^v^^ knnvvv<<-vvxxxxs:~.^v^^-.^^j:-^5:C: v,^^ Norwegian exports to Germany under agreement with ^¥ar Trade (Agreement effective May 10, 1918.) Board. Commodity. Total exports, months of June, Julv, August,' and October, 1918. E.xports permitted annually to Central Powers under agreement. Commodity. Total exports, months of June, July, August, and October, 1918. Exports permitted annually to Central Powers imder agreement. Ksh and fish products Metric tons. 1.5, 079 Metric ions. 48, 000 2173,614 3 5, 467 . - 1, 260 10,000 S.OOO Kerrosilicon Metric tons. 640 1,177 110 . >230 3,022 Metric torn. 2,000 Iron ore 23, 544 Granite. . . 2 531 Zinc - . . 219 Feldspar... 20,5 2,856 2,. 509 Seaweed and seaweed ashes Another 903 1,466 Cfllpinm Tiitrntfi ^ To Austria. 2 Including 133, i3U tons In compensation. 3 Including 4,407 tons in compensation. 44 REPORT OF THE WAR TRADE BOARD. SWITZERLAND. The Swiss agreement with the War Trade Board was signed De- cember 7, 1917, effective for the period October 1, 1917, to September 30, 1918. The statistics presented herewith for the years 1916 and 1917 and for the first nine months of 1918 show both the effectiveness of agreements with the Allies during 1917 and the added effectiveness of control during the major portion of the agreement with the War Trade Board. Swiss exports to Oermany. [Aninials=nuniber; all otliers=nietric tons.] Year. Cereals. Fruits and vege- tables. Fine food- stuffs, etc. Food- stuffs or animal origin. Ferti- lizers and waste. Animals. Leather skins, etc. 1916 . 14,051 6,859 773 18,856 6,144 648 5,739 5,839 2,5S9 35, 612 23,217 14,106 22,877 9,604 3,742 65,598 26,437 9,640 1,674 1917 709 January-September, 1918 11 Year. Seeds and plants. Wood. Iron. Copper. Lead, zinc, tin, and nickel. Alumi- num. Fats, oils, etc. 1916. . 34, 566 7,932 10 16,395 6,373 517 34,703 29,959 15,280 709 953 700 140 25 1 10,846 10,750 7,069 1,024 1917 49 January-September, 1918 DENMARK. Denmark was in a peculiar position with reference to the embargo because of the effect upon her live stock and dairy industry when United States feedstuff's became unavailable. Chart X shows the extent to which Denmark had depended upon the United States for feedstuffs from July, 1914, until the embargo became effective. The Associated Governments clearly realized that the cessation of feed- stuffs imports would compel the Danes to sell or slaughter their herds and that those meat products would be shipped in large quantities to the Central Empires. Danish exports of certain foodstuffs to Oermany — Comparison of prewar autumn, 1917, and summer, 1918.^ ' [Units: Cattle, head; all other, tons.] Period. Monthly average, 1911-1913 Month's exports, Nov. 21-Deo. 19, 1917. Month's exports, June 26-July 24, 1918. Cattle. n,921 33,625 6,630 Fresh meat. 1,875 1,560 334 Bacon and pork. 153 1,172 72 Butter. 1,172 928 Fish. 2,096 1,384 964 Milk. 1.718 288 200 Vege- tables. 842 328 Total.! 1 See Chart X, p. 40. 'iaJK-asf, ■ ■ ,;,'" 2 Cattle converted to dressed meat at 450 pounds per head and so included in total. 11,250 12,415 3,087 REPORT OF THE WAR TRADE BOARD. 45 Exports of cattle to Germany in the fall of 1917 were thus three times as large as during the prewar period, but by the summer of 1918 had fallen to one-half the prewar rate. Exports of bacon and pork show that the Danes had attempted to sacrifice their hogs and pave the dairy animals, for bacon and pork exports in the autumn, 191Y, rose to seven and one-half times the prewar figure; but this again was temporary, and by the summer of 1918 was only one-half the prewar rate. The effect of the feedstuff s embargo is likewise revealed in the exports of butter and milk to Germany. The table as a whole indicates clearly that the purpose of the embargo was achieved by the summer of 1918, when Danish exports of foodstuffs to Germany were but a small fraction of the normal amounts before the war began. II. THE FINANCIAL ISOLATION OF THE ENEMY. ALLIED CONTROL OF ENEMY TRADE AND ITS RESULTS. Purpose. Simultaneously with the development of their blockade policy in order to interrupt the flow of physical supplies into enemy territory, the Allied Governments developed a coordinate policy of control over enemy trade. Two ends were to be accomplished by the latter: (i) The restriction on the poiL-er of the enemy to finance the war. — The credits that were established as a result of ordi- nary commercial operations of enemy firms could easily flow to enemy countries through neutral channels, there to be used as the basis of war loans ; or they could be used in neutral countries for purposes of propaganda or to pur- chase supplies to keep them from the Allies. (3) Destruction of world trade organization of enemy commer- cial interests. — It was felt that the gradual destruction of long-established organizations providing channels for German trade abroad was a most effective belligerent meas- ure, because of its effect upon the prolongation of the war. The knowledge that German overseas connections were being maintained and that credits were being built up or stocks of raw material being accumulated for postwar trade was a substantial reason for continuing the war ; on the other hand, the loss of these connections would tend to create a powerful sentiment for peace among the com- mercial classes of Germany. Method — The Allied Lists of Enemies. The main weapon of the Allied Governments in dealing with enemy trade was the list of enemy persons and firms, commonly called the black list. The British " Statutory List " was composed of per- sons or firms of enemy nationality or association proclaimed by the British Government under the trading with the enemy act of 1915. All British firms were prohibited from trading with any one on this list. • The French official list was of the same character. In each country a " confidential list " was also compiled, but not under statutory authority. This list, not published, furnished a confiden- tial guide for the licensing authorities in determining the status of consignees in neutral countries. It included those companies shown to be acting as channels for the passage of goods or credits through neutral countries to the enemy. A subdivision of the British list comprised firms against whom suspicions more or less serious existed and was used by the customs authorities in exercising the right of challenge. 46 KJii-OKT OF THE WAR TRADE BOARD. 47 Results of Allied Control. There is no mistaking the far-reaching effect of the enemy lists in controlling current trade operations overseas. Trade of allied firms with blacklisted persons was effectively prohibited and ship- ments to and from the border neutrals were greatly restricted, either by the difficulty of passing contraband through the British naval patrol or by the inability of ships to obtain British bunker fuel in case they carried cargo for listed consignees or consignors. The matter of controlling enemy-trade activities in remote neutral countries, as in South America, or between the United States and South America before our declaration of war had been more difficult. The enemy had spent money lavishly on propaganda and on the purchase of raw materials to keep them from the Allies or to replenish depleted or exhausted stocks after the war. By April, 1917, there were large stocks of goods in the United States purchased on German account and held in interned ships or in bond. Reserves of metals, cotton, and phosphates had been built up according to an extensive program. In some cases stocks had been turned over to American owners, par- ticularly after relations became strained with Germany, or were placed to the account of neutral firms overseas. There was, in addi- tion, a heavy investment of German capital in American business firms and corporations. THE CONTROL OF ENEMY TRADE BY THE UNITED STATES. The problem that faced the United States in dealing with enemy trade after the break with Germany was threefold: (1) The control of American commerce during the war by a careful vise of the char- acter of consignors and consignees to see that our commercial opera- tions did not result in making credit or goods available to the enemy ; and the control (2) of enemy interest in American business and (3) of accumulations of enemy stocks in the United States and elsewhere with the purpose of hampering the financing of enemy activity during the war and destroying the prospects of their postwar trade. Creation and Delegation of Powers Over Enemy Trade. The common-law prohibition against enemy trade was reduced to statutory form by Congress in the trading with the enemy act, Oc- tober 6, 1917, some portions of which, affecting the War Trade Board, have been quoted heretofore. Specifically this act granted to the President the authority : (1) To prohibit enemy trading except under license. (2) To require the transfer of enemy property in the United States to an alien property custodian. (3) To prohibit communications between United States and foreign countries except under rules and regulations to be established. . . (4) To establish censorships of all communications between the United States and foreign countries. (5) To regulate or prohibit transactions in foreign exchange, ex- port of specie, or transfers of credit between the United: States and any foreign country. 48 REPORT OF THE WAR TRADE BOARD. The Work of thB War Trade Board. These several powers were delegated by the President as follows: The censorship authority was placed in a censorship board which contained a representative of the War Trade Board; and m the de- velopment of the work of the censorship organizations throughout the country, the War Trade Board, which was directly interested from its function of control of enemy trade activities, was repre- sented and maintained in each censorship station a special repre- sentative. The control and reflation of transfers of credit, export of specie, etc., and the licensing of communications between the United States and foreign countries other than by regular mail was placed in the hands of the Secretary of the Treasury ; an Alien Prop- erty Custodian was appointed, as required by the law, to receive transfers of enemy property in the United States, and authority to license enemy trading was given to the War Trade Board. The work of the latter in controlling enemy trade was in part, therefore, the primary function of controlling ordinary business transactions be- tween American firms and foreign firms for the purpose of eliminat- ing enemy interest ; and, in part, the secondary function of cooperat- ing with these other agencies to the end of rendering this work more effective. 1. THE DETERMINATION OF ENEMY STATUS THE WAR TRADE INTELLI- GENCE SERVICE. The allied lists of enemies had been made up of individuals or firms of enemy nationality or association. This definition of enemy status was not adopted in its entirety by the United States. The trading with the enemy act made it unlawful, except under license, for, any person in the United States to trade — either directly or indirectly, with, to, or from, or for, or on account of, or on behalf of, or for the benefit of, any other persons, with knowledge or reasonable cause to believe that such other person is an enemy or ally of the enemy, or is conducting or taking part in such trade, directly or indirectly, for, or on account of, or on behalf of, or for the benefit of, an enemy or ally of the enemy. An " enemy " as defined by the law may belong to any one of the fol- lowing groups : (1) Persons in Germany or in the countries allied with Germany. (2) Persons in neutral countries doing business in Germany or in the countries allied with Germany. (3) Agents of Germany or her allies, in neutral countries. (4) Such other persons in neutral countries, citizens or subjects of Germany or her allies, who may, iy proclamation of the President, be declared to be enemies. The difference, in other words, between the allied definition of " enemy " and that of the United States lay in the status of German subjects or citizens in neutral countries. They were not, ipso facto, enemies of this country. Trading with persons in the Central Em- pires or acting as agents of enemy governments automatically estab- lished enemy status. Otherwise they could be declared enemies only by proclamation of the President upon finding that the safety of the United States or the successful prosecution of the war so required. EEPOET'CT' THE' WAR TRADE BOARD. • 49 The basic necessity for the administration of the law against enemy trading was exhaustive investigation into the character and activities of hrms or persons whose names appeared on import and export license applications and of firms doing business in the United States who might show any disposition to hinder the development of war activity through the control of materials or of enemy investment in American property. In other words, it required the development of a war trade intelligence service that would sift every available source of informa- tion, correlate evidences of enemy interest and bring them to the atten- tion of the proper authorities. With the control of foreign trade in the hands of the War Trade Board and that of enemy property in the United States under the Alien Property Custodian, the essential serv- ice of war trade intelligence was concerned primarily with these two agencies. The enemy trading lists. — The investigation of the status of con- signors and consignees on export and import license applications had been begun under the Exports Administrative Board, pursuant to powers conferred upon the President by the espionage act. It re- sulted in the establishment of three lists of enemy firms: (1) The Enemy Trading List; (2) the Confidential Suspect List; (3) the Cloaks List. The Enemy Trading List was published, the original issue having been announced to the public on December 5, 1917. The press state- ment, accompanying and the introductory statement published with this list outline its purposes so clearly that they are given here in full : Since the passage of the trading with the enemy act, approved October 6, 1917, the War Trade Board has received, from exporters, importers, and other persons engaged in foreign trade, numerous and urgent requests that there be published, for their guidance in observing the provisions of the statute, a list of those concerns iu foreign countries with whom, under the provisions of the trading with the enemy act, it would be illegal to trade without a license. In response to these representations, the War Trade Board, in cooperation with other governmental departments, has compiled a list known as the " Enemy Trading List," which has been made public to-day and is now being distributed to merchants and commercial organizations throughout the country. This list contains the names of some 1,600 concerns in Latin America. Copies have been sent to all names on the mailing list of the War Trade Board. 1. The Enemy Trading List is compiled for the benefit of American mer- chants who, by the trading with the enemy act, are prohibited under penalties from trading with the enemy, or ally of enemy, without first obtaining a license from the War Trade Board. This is a list of enemies and allies of enemies, and otlier persons, firms, and corporations, who there is reasonable cause to believe have acted, directly or indirectly, for, on account of, on behalf of, or for the benefit of enemies and allies of enemies. This list does not purport to be a complete list. Any person, firm, or corpora- tion trading with any other person, firm, or corporation who there Is reason- able cause to believe is an enemy or ally of enemy, or in such trade is acting for, on account of, on behalf of, or for the benefit of an enemy or ally of enemy. Is not relieved from the prohibitions and penalties imposed by the trading with the enemy act by reason of the fact that the name of such other person, firm, or corporation does not appear upon this list. 2. In order to minimize, as far as possible, anj' inconvenience which may be caused to American merchants by the dislocation of foreign trade owing to the operation of the trading with the enemy act, the War Trade Board is col- lecting and classifying the names of nonenemy firms who may be able to act as substitutes for firms who may prove to be enemies or allies of the enemy, within the meaning of the trading with the enemy act. A considerable amount of information is already available at the War Trade Board, and It will be in 103584—20 5 50 - REPORT OF THE WAR TRADE BOARD. manv cases possible to suggest the names of satisfactory substitutes without the necessity of referring the matter abroad. The Board is, however, preparea on application to inquire of United States consuls abroad for the names of suitable substitutes. When the applicant wishes this done by telegraph he will be required to undertake to pay the cost of telegraphic correspondence. The Board assumes no responsibility whatever for the credit, standing, or financial responsibility of such substitute firms. It would greatly facilitate the work of the War Trade Board if applicants in making inquiries would specify the particular trade or trades for which sub- stitutes are required. 3. The Enemy Trading List, of which this Is the first issue, will be telegraphed on the day of its issue to the representative of the United Stales of America in each country abroad, who will be instructed to notify all American consuls to whom persons abroad should apply for Information as to the names on this list. Firms in the United States of America with agencies or branches abroad should, however, furnish such agencies or .branches with copies of the lists as they arc published. The list will be mailed as issued to all firms appearing on the mailing list of .the War Trade Board. This list originally covered only Mexico, Central America, and South America, but was later extended to include countries in Europe as well. The Confidential Suspect List and the Cloaks List were not pub- lished, but were available to a limited number of other governmental agencies and to representatives of the Allied Governments. The former contained the names of enemy traders which, for reasons of expediency, it was undesirable to publish. The Cloaks List, cover- ing Latin xVmerica and Spain, was compiled by the Board for the use of officials in the United States, Great Britain, France, and Italy. It represented persons and firms without standing in international trade whose names were used by listed firms as covers for obtaining goods. The Jocation. of enemy froperty in the United States. — The reports analyzed by the intelligence service of the Board, gathered from every available source, contained a great deal of information about enemy-owned property in the United States or enemy interests in American business firms or corporations. This evidence was sub- mitted at once to the Alien Property Custodian, to be used as a basis for action by him. The location of enemy stocks in neuti^al countries. — These investi- gations likewise disclosed the existence of enemy stocks in neutral countries, purchased in many instances from American firms before our entry into the war. 2. TBtE CONTROL OF ENEMY INTEREST. Vise of license afplications. — The information gathered by the intelligence service of the Board was made effective in United States foreign trade primarily through the vise of applications for import or export of commodities into or from the United States. Every application for an individual license either for import or export was reviewed by the intelligence service if there were any possibility of enemy interest appearing. This included practically all commodi- ties moving between the United States and neutral countries. Special cases; supplementary agreements. — In special cases the general re\iew of applications for export licenses was supplemented by definite agreements if the commodities exported were such as could easily be used to the advantage of the enemy. One of the most difficult matters to handle had been enemy propaganda in REPORT OF THE WAR TRADE BOARD. 51 neutral countries and the convenient media of this propaganda had been the moving pictures and the newspapers. It was found, for instance, that Germany had exhibited certain films manufactured in Germany with film of allied origin and nonmilitary character. The cinema organizations of Switzerland were said to be largely under German supervision and were provided with (xerman propaganda films to be exhibited along with such allied films as could be obtained. The regulations of the War Trade Board for the exportation of film required, among other things, that the recipients in the country of destination should sign an agreement with the board not to exhibit it at any place where enemy films were shown nor where any per- formance was given of any kind whatsoever detrimental to the in- terests of the United States and associated countries. The regula- tions for the exportation of news print paper and standard news were likewise established to prevent the circulation of enemy propaganda. Shipments were- permitted to an ultimate consumer or a consignee only on agreement not to resell without the consent of the War Trade Board. Refusal of ships:'' iiuihers to enemy traders and supervision of sale and transfer of vessels. — While the trade of American and allied firms with enemy firms was controlled effectively by vise of the names of consignors and consignees on import and export applica- tions for license, supplemented as stated above by consignee agree- ments in special cases, this alone would have been inadequate to cope with the larger problem of enemy trade. The activities of enemy interests in neutral countries, in smuggling supplies to submarine and commerce raiders, and in trading between neutral countries had to be reached by other means. The method that was used with excellent results was the control over bunker supplies to shipping and careful supervision of the sale and transfer of American ves- sels.^ The information contained in the enemy trading, suspect, and cloaks lists made it possible to refuse bunker supplies to ships operated in enemy interest ; and this control by the War Trade Board in cooperation with the previously established control of the same character by Great Britain was a weapon of great power against the enemy. The voyages were very few and very unimportant in which a ship did not require bunker coal from either a British or an American coaling station. In case of sale or transfer of vessels of American registry, the enemy trading lists were scrutinized carefully to determine if any person interested in such sale or transfer was listed. The control of enemy stocks in neutral cowntries. — The evidence collected by the intelligence service of the Wai' Trade Board in many cases revealed stocks of enemy property in neutral countries. It was a difficult matter in most instances to gain any effective con- trol over these stocks. In the Americas the cutting oif of trade relations with enemy firms holding these supplies sometimes forced their relinquishment. Situations of this sort arising in the neutral countries bordering on Germany were handled as part of the trade agreements of these countries with the War Trade Board. Since the agreements were based on the policy of rationing the neutral coun- tries to supply their domestic requirements, rations were based on 1 See pages 59-61 and 330-3.33. 52 REPORT OF THE WAR TRADE BOARD. domestic consumption needs, taking into consideration all sources of supply and all stocks on hand. This policy is indicated clearly in the following extracts from the several agreements : NOKWEGIAN AGREEMENT. The importation into Norway of the articles described in said amended schedules is for consumption in Norway, and the quantities thereof which shall be licensed * * * shall at all times be determined by the actual internal requirements of Norway, with due regard to e.risting stocks. * * * Within 60 days * * * full statistics shall he * * * furnished * * * shotving in detail the amounts of existing stocks in Noricay of all articles enumerated * * * „)j,(j u^^o shoiving the location and ownership of such stocks. DANISH AGKEEMENT. The commodities described in said annexed schedules are to be imported for consumption in Denmark ; and the quantities thereof which shall be licensed * * * shall at all times be limited by the actual internal requirements of Denmark, ivith due regard for existing stocks. * * * NETHERLANDS. AGREEMENT. Statistics shall he communicated forthwith to the Associated Governments of live stock in the Netherlands and of stocks in the Netherlands of such com- modities as the Associated Governments shall require on which the rations are based. SWISS AGREEMENT. It is specifically stipulated and declared by the Swiss Government that the import of grain, foodstuffs or feeding stuffs * * * shall in no event operate to release any grains, feeding stuffs or foodstults of Swiss origin or nou: con- tained in Siviss stocks for export to the Central Powers. The control of enemy property in the United States. — The machin- ery of this control was in the hands of the Alien Property Cus- todian. The War Trade Board functioned in this connection only as an investigating agency and furnished the Alien Property Cus- todian with all evidence that came to its files disclosing enemy interest in property in the United States. 3. THE UXinCATION OF ALLIED AND AMERICAN ENEMY TRADING LISTS. Coordination of allied efforts against enemy trade Avas a difficult and delicate problem. It early became obvious that steps must be taken to coordinate the enemy trade restrictions of the principal Allies. There was no uniformity in the black lists of Great Britain, France, Italy, Japan, and the United States. There were divergences m their enemy trade policies. There were differences in their statutes. There was no uniformity in the information upon which action was based. There was no machinery for avoiding clashes of purpose and mutual blocking of efforts to attain ends that should have been sought m common. As a result, British ships were refusing to carry Ameri- can goods to firms in Latin America which were listed by Great Britain but not by the United States. Mail and telegraphic com- munication between American firms and firms in neutral European countries, listed by the British or French and not by the United States, was interrupted by the British and French" censorships: and, similarly. French and British communications with firm^ in REPORT OF THE WAR TRADE BOARD. 53 Latin America, listed by the United States and not by the British or French, might be interrupted by the former. American merchants and their agencies in South America Avere hampered in their trade by the local operation of the British lists and the local enforcement of restrictions through British consular control. British merchants and officials naturally could not understand why Americajis should con- tinue to trade with firms included in the British list as enemv in character or connection. The situation Avas one fraught with serious dangers which threat- ened to groAY. Furthermore, to a great extent the variation in the lists and policies were working against the Associated Governments and in favor of the Germans, for listing of a firm by the United States might be practically nullified if Great Britain' supplied the lis-ted firms with goods to remedy the loss of American facilities, and vice versa. To remedy this situation, conferences were held with representa- tives of the British Embassy and the French High Commission and a policy of unification of black lists and coordination of enemy trade restrictions was agreed upon, to which the assent of Italy was soon obtained. It was the purpose of the four Governments cooperating to include Japan as soon as possible, and the latter had agreed in principle to this plan of unification. . The principles of the coordination plan which was approved by the United States, France, (rreat Britain, and Italy, subject to minor qualifications, may be summarized as follows : (a) The various enemy trading lists shall be unified as far as possible. This work, so far as England, France, and the United States are concerned, was already accomplished. (b) Xo changes in the unified lists shall be made without previous conference and discussion between representatives of the four As- sociated Governments. (c) Announcement of all changes in the published lists shall be made simultaneously by London, Paris, Eome, and Washington. (d) Xo enemy trading license (subject to agreed exceptions) shall be issued without a confei'ence on the case between representa- tives of the four Associated Governments. (e) In the case of any name listed by any of the four Govern- ments but not by all, the enemy trade restrictions incident to list- ing shall not be applied by the listing Government or Governments to trade directly between the territory of the other cooperating Governments and the listed person or association. This means, for instance, that trade between Great Britain and a firm in South America listed by the Ignited States but not by Great Britain will not be interfered with by restrictions imposed by the United States at a transshipment point in the United States territory merely because of the listing of the consignee or consignor, and that simi- larlv trade between American firms and firms in South Amei'ica or neutral Europe will not be interfered with by British restrictions because the firm in South America or neutral Europe has been listed by the British, if it has not been listed by the United States and the United States has not agreed to the restriction. (/) Officials of any one of the four Associated Governments shall not interfere outside its territory with the trade of nationals of the 54 EEPORT OF THE WAR TRADE BOARD. Other three cnintries on the ground of its enemy trade character. If the character of the trade in question is objectionable from the standpoint of the Associated Government to which the trader belongs, the matter will be brought to the attention of. the proper oihcial ot the trader's Government, who will take appropriate action. {g) There shall be full and frank interchange of information on enemy trade matters between the war trade intelligence service and diplomatic and consular officials of the four Allied Governments concerned. This work so far as England, France, and the United States were concerned was accomplished so successfully that substantial identity of the published lists was obtained. To carry these principles into actual operation, however, required a great deal of technical routine and very careful and constant supervision on the part^of persons thoroughly conversant with all phases of war trade intelligence •work. The machinery devised for maintaining and perfecting the coordination in accordance with the principles agreed upon may roughly be described as follows: There were three main interallied committees to review cases of proposed changes in the coordinated enemy trading lists and to dis- cuss listing policies, measures, and changes of procedure. The com- mittees also discussed proposals for the issue of enemy trading licenses and the principles involved in the decision of such cases. These three committees were composed of representatives of the War Trade Board and of the corresponding governmental services of Great Britain, France, and Italy. One committee sat in Washington and reviewed the cases which concerned trade with persons and associa- tions located in Latin America; a second committee sat in London and reviewed cases concerning trade with persons and associations in the Netherlands East Indies, Portugal, and the neutral countries of Europe, exce^jting Spain and Switzerland; the third committee sat in Paris and reviewed the cases for Switzerland, Spain, Greece, and Morocco. A procedure was devised for accomplishing and maintaining uni- formity in all the lists, which may be outlined briefly as follows: Conferences were to be held regularly by representatives of each of the four Governments in each country covered by the lists, at which names suggested for addition to or removal from the respective pub- lished and confidential lists would be discussed in the light of all available evidence. The resulting determinations with specific rea- sons would be transmitted to each foreign office, and simultaneously to the respective embassies or high commissions in the caj)ital (Lon- don, Paris, or Washington), where the proper reviewing committee sat. If there were a difference of view, after conference, the United States representative would transmit to Washington and to the United States representative on the proper reviewing committee his own opinion, with specific reasons therefor, and the varying opinions of his colleagues. No recommendations for changes in the published or confidential enemy trading list were to be made by consular or diplomatic representatives without previous conference, if possible, with their associated colleagues. The consular or other representatives of the four Associated Gov- ernments in the locality where the firm resided or did business first REPORT OF THE WAS, TRADE BOARD. 55 conferred, exchanged information, and discussed the ciise. They then commimicated the result to their respective leg-ations and embassies, between which a further conference was lield. The result of this second conference, as well as the recommendations of the local repre- sentatives, were then transmitted by the ministers to Washington, London, Paris, and Rome, respectively, and to the proper reviewing committee. The purpose of this procedure was to secure the following conserv- ative checking devices : (a) A preliminary determination of the facts by the local repre- sentatives of the four Governments in the place where the person or association involved in the case was resident or doing business. The consultation between them was expected not only to bring about full deliberation, but also more complete information than could be ob- tained by any one of them alone. It was also expected that such con- sultations would avoid material discrepancies in reports of facts to the respective home Governments, which accounted for a great deal of the divergence in the lists of the past. (i) The review of the cases by the diplomatic i'epresentativ(>s in the country for which the name was to be listed was expected to revise the recommendations from the viewpoint of diplomatic, politi- cal, and broad commercial considerations which might be applicable. (c) The final review by the committee in Paris, London, or Washington would take into account all the facts and recommenda- tions reported by the consular and diplomatic representatives and also any additional information available in the records of the respective home war trade intelligence offices, and the committee would reach its determination in the light of the general listing and licensing policies which had been worked out through experience by the respective Governments. It is to be remembered that the recommendation of the interallied committees as to listing and lirensing were not binding on their respective Governments, although the advantages of uniformity and cooperation dictated that these recommendations should be followed in all cases unless some strong overruling consideration existed. It is needless, perhaps, to record that the argument for coopera- tion in listing applied as strongly to the case of licensing enemy trade, for the importance of enemy trading lists lay not in the listing but in the results of listing. In so far as enemy trade was licensed it changed the effects of listing. Therefore, if all dangers of mis- understandings and suspicions between the respective Associated Gov- ernments and peoples were to be eliminated in these enemy trade matters, it was essential that cooperation in licensing and in listing should go hand in hand. The procedure for coordinating the enemy trading lists which has been described above did not apply to the cloaks lists. The cloaks lists for Latin America and for Spain were compiled by the War Trade Board on behalf of the interallied committee in Washing- ton for confidential use by the officials of all four Associated Govern- ments. Listing through conference discussion was a relatively slow process and speed in listing was of the essence of an efficient cloaks list. Cloak names were changed rapidly by enemy traders in order to escape discovery, and the only way in which the purpose of their ingenious devices could be defeated was by prompt action. 56 REPOKT OF THE WAR TRADE BOARD. The Allies accordingly agreed to intrvist the compilation of the cloaks list for Spain and Latin America to the United States War Trade Board with the following understanding : The cloaks list shall be narrowly confined to cover names which are used In international trade only for concealment purposes. It shall not contain names of established firms, but only fictitious names and names of men of straw. So confined, the list will not affect anyone excepting those who are using the cover names for concealment purposes, for the list is not published but used only confidentially to stop correspondence and trade carried on under the cloak names. Although the plan of coordination which has been described was conceived and perfected for the purpose of making more efficient the economic offensive of the four Associated Governments and for ehmi- nating certain unfortunate results of their previous lack of coordina- tion in enemy trade matters, it was believed by the War Trade Board, as well as by the representatives of the Allied Governments who worked in cooperation with it, that a more permanent benefit would be derived from the habits of common counsel and cooperation which were acciuired in the process of making the plan effective. The war aims of the United States and the problems arising after the war urgently called for just the sort of cooperation necessary to carry along successfully the detailed working of the coordinated enemy trade policy. The more points of contact between the Associated Governments in the development of these habits of common purpose and mutual adjustmeait that were brought about by war necessities, the more chances there were that the equally complicated and im- portant questions of peace adjustment would he successfully handled in the same spirit. The Results of the Policy of Control Over Enemy Trade. In the nature of the case, enemy trade is a matter so intangible, so little subject to statistical measurement, that it is exceedingly difficult to express the results of the control exercised by the War Trade Board in other form than a judgment. This judgment has been indicated in the preceding pages. It is possible to supple- ment it by illustrations of actual investigations that have been under- taken by the intelligence service of the Board. These illustrations, Avhich carry their own story of results, are classified in accordance with the preceding discussion, namely : ( 1 ) Eestriction of enemy trade in foreign countries through vise of names of consignors and consignees on export and im- port license applications. (2) Locating enemy property in the United States for the Alien Property Custodian and guarding against reinstatement of enemy interest. (3) Eeduction of illicit traffic with the enemy through refusal of ships bunkers and through supervision of sate and trans- fer of vessels in cases revealing enemy interests. 1. EESTRICTION OF ENEMY TRADE IN FOREIGN COUNTRIES. No statistics are available to indicate the extent to Avhich the total business done by firms on the enemy trading list has diminished EEPORT OF THE WAR TEADE BOARD. 57 after the passage of the espionage and the trading with the enemy acts. Still less is it possible to demonstrate the extent to which the profits of enemy firms were diminished by the effects of the policies of the War Trade Board. The evidence indicates that these effects have be^n far-reaching and, important. So far as these firms did any business they did it through the employment of cloaks and inter- mediaries. Although the detection of these intermediaries Avas an apparently endless task, the commissions and exactions which they placed upon their principals, both in the purchase of material and sale of products, Avere apparently sufficient in most cases to con- sume mixch of the normal profit of the transaction. Repeated in- stances have shown that enemy mine products and sugar in South America found a market, if at all, only at prices substantially below those available to unobjectionable producers. From many reports concerning the effect of our enemy trade warfare a few instances may be selected : Melclieis, Suerx,, of Mexico. — The west coast of Mexico was a section In which enemy sentiment was strongly intrenched. An American consul lo- cated there reported at one time that the business of the most important irorman house in that territory still able to transact business, namely, Melchers, .Sucrs., had apparently been reduced to about 30 per cent of its normal volume. Hascnclerer. of Arficntina. — In Argentina one of the most powerful enemy firms wiis the house of H:)senc]ever. the distributor for all eastern South Amer- ica of the products of the International Harvester Co. and the Oliver Chilled . Plow Co. Fo'lowing the cancellation of the American agencies held by the firm it was compelled to sell to American houses its stocks of American machinery, parts, and equipment, together with the good will of the business, and an industry built up by years of effort passed from German to American control. German firms in Chile. — In Chile, under normal conditions. German firms produced an appreciable portion of the entire nitrate output. Through control iif fuel-oil shipments by the War Trade Board, in conjunction with the British control by antecedent contracts, their production fell to approximately 7 per cent of the total. Gildemeister. of Pern. — The Gildemeister firm owned and operated the largest sugar property in Peru, with a production equal to about 25 per cent of the total procluction of Peruvian sugar. The completeness of .\raeriean control, by which exportation of their sugar from Peru was made impossible, even enlisted the interest of the Peruvi.Tn Government in the controversy, on the plea that the loss of revenue and the unemployment which would result from the operation of this poMcy would seriously affect that Government. To the end that the interests of a friendly Government might be recognized, temporary re- lief Avas afforded to the sugar property, which was put in the bands of a Peruvian administrator pending the consent of the German owners of property to its sale to American or allied interests. After a reasonable opportunity had been afforded the German oA^ners to meet the conditions prescribed, the tem- porary relief was withdrawn and the output of the estate immobilized in Peru pending further negotiations. Port facilities at Amapala. — In like manner the German control of the port faei'ities at Ainapala, the only Pacific port of the Republic of Honduras, was eliminated and replaced b.v American interests. German interests in- Cnha. — For many months thei'e had been rumors that all the large industries in Cuba were being taken over by a German syndicate for the purpose of controlling them for Germany after the war. An extended investigation of this complex situation was made for the War Trade Board by a special commission, and a complete report was submitted .showing the exact conditions. ■2. (A) LOCATINO EXEMT PROPEETT IN THE UNITED STATES. Fritz Materna, an Austrian officer. — An intercepted letter from Denmark to one Martini in the United States was forwarded to the War Trade Board by 58 EEPOKT OF THE WAR TRADE BOARD. the British. The writer urged the addressee, his attorney in fact, to forward $15,000 to him immediately, as he was in need of funds. With this 'etter as a clue, simultaneous examination was made, through the Secret Service, of some six persons In the "United States. These were scattered over the country — in San Francisco, Chicago, New York, and Washington. It was ascertained that the writer, Fritz Materna, was in an ofBcer's training camp in Austria, that he was using a postal intermediary in Denmarli, and that he had a large amount of property in this country. As a result of this investigation It was possible for the Alien Property Custodian to take upward of $400,000 worth of property. Banco ilcxicano de Gomerrio y Industria, Mexico City. — Intercepted corre- spondence and reports from the American Embassy and consulate in Mexico, together with advices from the British and French authorities in Washington, made it possible to furnish the Alien Property Custodian with sufficient infor- mation for him to take over about 42 per cent of the stock in the Banco Mexi- cano de Comercio y Industria. Horario Frrrcccio. — An application for an enemy trading license disclosed the fact that an effort was being made to sell Ferreccio's tin mine — the Oom- pania General de Mlnas en Bolivia. Upon investigation, the proposed pur- chasers were found to represent, to a large extent, the interest of the Gold- schmidts, of Essen, Germany. As a result of the proper action being taken, tills source of raw material was kept out of the hands of the enemy. (Se.riiKin insurance pool. — An intercepted letter from the Postal Censorship mentioned a German insurance pool. Investigation disclosed a large group of German companies formed to write American business, which pool, by its terms, was to last for the duration of the war and for three years thereafter. This expose was most important in certain results. Incidentally it located approximately $100,000 in cash. H. Vpmanii & Co., Babana, Cuba. — On February 2, 191S, an 'extensive report concerning this company was made to the Alien Property Custodian. As a result of cooperative Investigation carried on after that time very large funds were taken over by the Government. Platinum situation. — At the request of representatives of the War Trade Board a Secret Service investigation was made of the platinum supply in the country. This was found to be controlled by German intereats and was the subject of con- siderable discussion in Congress. (See Congressional Record, June 7, 1918.) This discussion was based on a memorandum prepared for the purpose by the War Trade Board. Iiu-csticjation of cliemical and dye trade. — It was found that this trade was in the practical control of a well-defined group of firms of questionable character. An investigator was detailed to study the chemical and dye industry in order to ferret out its interwoven enemy affiliations and break the so-called chemical ring which apparently had been f(jrmed for the purpose of exploiting the chemical trade in this country during the war and continuing it for Gerni.-iny after the war. The investigation brought to light a very significant situation" and fairly indicated that .such a group did in fact exist. As a direct result of this investigation one company was compelled to report itself to the Alien Property Custodian as a 100 per cent German-owned company. I'^ven after its report, the company attempted to retain its German color and to provide for its repurchase Ijy German interests. It is believed that the War Trade Board was of considerable assistance to the Custodian in discovering and frustrating these efforts. Another company was forced to report from 80 to 100 per cent of its stock to the Custodian ; a third reported 100 per cent and a fourth 48 per cent. Iiircstif/atioH of the tobacco industri/. — An investigation was conducted to determine and dislodge German interests in the tobacco industry. ^yool industry.— As a result of the investigation of the wo(d situation consider able evidence was obtained in connection with certain well-known German wool firms. This evidence resulted in the appointment of a wool consignee for these industrie.s^to assure the Quartermaster's Department that the output would be available for the manufacture of army uniforms. .Hiliii.^ Lchmann, Munich, Germany.^lt was learned that payments were being made to an individual in this country for the benefit of the above. These payments proved to be dividends on stock owned by Lehmann in the Wilson Dressed Beef Co. and the Faultless Rubber Co. Gomtwk Hainze d Co.— An investigation based on intercepted letters ^howed that Ignace Panzer, a partner of the above (a firm on the enemy trad- ing list, with branches in all large ports of Europe and this country') had REPORT OF THE WAR TRADE BOARD. 59 incorporated the Superintendence Co. in the United States to carry on tlie business of the firm during the war. Valuable general information as to the activities of (TOldstuck, Hainze 6c Co. was uncovered and reported to the Allied Governments concerned and the Custodian prepared to make a demand for (9 per cent of the stock. L\ (151 GUAEDINO ,\(JA1NST KKINSTATE:MENT OF ENEMY INTEREST. Manila Drug Co., MaiUUi. P. I.~A conspicuous example is that of the Manila Drug Co., Manila, P. I. This business was taken over by the Alien Property Custodian. A supplementary repori called attention to the fact that the Botlca Boie Co. was controlled by the same interests as owned the Jlanila T)i-ug Co ^owithstanding this fact, the Botica Boie Co. later succeeded in purchasing the Manila Drug Co. from the Custodian. Obviously, the enemy interest was not ehminated and for that reason there was no alternative but to continue to treat the business as enemy owned. Trans-Atlantic Truxt Co., New yor/,-.— Another case of a similar nature is that of the Trans-Atlantic Trust Co., New York, This trust company was a branch of the Royal Hungarian Postal Savin.gs Bank of Budapest, which Is an institution of the Austrian Government. After the Alien Property Custodian took over the reported enemy interest, many examples of improper acts by the trust company continued, to b;- brought to the attention of the War Trade Board. Its representative was accordingly placed in the company's offices. Following the information gathered by him and the MiUtary Intelligence Divi- sion, the president and treasurer of the company were arrested and the affairs of the bank put into Uquidation. Among other interesting discoveries was a list of some 950 agents of the bank. These agents were scattered through the United States, many being placed by the direction of the Austrian Government. The organization as discovered was dangerous in the extreme but was ulti- mately rendered harmless. a. THE REDUCTION OF ILLICIT TRAFFIC WITH THE ENEMT THROUGH BUNKER CONTROL AND CONTROL 0^'ER SALE AND TRANSFER OF VESSELS. Discharge of stores in Rotterdam. — Secret Service investigations developed the fact that many Belgian Relief vessels had been in the habit of selling old iron, rope, and other ship's stores in Rotterdam, and some of this material had been finding its way into hands of the enemy. This was a direct violntion of an agreement with the War Trade Board which was a condition precedent to the granting of bunker licenses. Operations oft the coast of Floridii. — Because of the operations of vessels off the coast of Florida which pointed to the fact that enemy activities were in progress, the War Trade Board, in cooperation with the Navy and Treasury Departments, put into effect rules requiring all vessels coaling at Florida ports and departing within 48 hours without entering or clearing (which boats pre- viously were not required to secure bunker licenses) to make application and secure license for all ship's stores and fuel aboard. In doing this it was neces- sary to gii'e a complete description of the voyage and employment of the vessel, and the master was required to make a sworn statement that none of the fuel or stores would be landed abroad, or transferred to another vessel. In order to break up illicit traffic the Navy Department, at the request of the War Trade Board, arranged to maintain a close patrol of the Florida coast. Chilean and Periirian ?/»c9 of stcanier.i. — The Cliilean and Peruvian lines whose vessels ply between I'eru\ian ports and the Canal Zone found it necessary to replenish their bunkers at the Canal Zone for the return trip. In order to control these vessels, and in view of the fact that they had been carrying sugar from the enemy-owned plantation of Gildemeister & Co., In Peru, the Board required the execution of an agreement giving complete control over all of their boats. Advices were received by the War Trade Board from the British Embassy to the effect that wolfram was being smuggled into Germany by vessels of the Chilean and Peruvian lines. It was stated that the wolfram was smuggled from Bolivia aboard the boats of these two lines, and was then transferred to neutral vessels, such as the Cowpania Trans-Atlantica, and carried across concealed in the bunkers. 60 EEPOET OF THE WAR TRADE BOARD. The ressels -Xntional City," •'^ er/a," and "Corona." — The vessels National City and ye'ju, under the Americnn flag, were allowed to leave for Peruvian ports in 1917, with permission to remain in Peruvian coastwise trade in exchange for the vessel Corona, it being agreed that the registry of the National Citi/ and Vega could be changed with the understanding that the vessels would be employed only in trade for the benefit of the United States or the Allies. Tt subsequently devel- oped that following the arrival of these vessels in Peruvian waters the National Citji, contrary to the wishes of the American consul, towed two vessels loaded with sugar fcir the enemy firm of (iildemeister ; this being contrary to the terms and spii-lt of the agreement with the War Trade Board, the American consul promptly informed tJie proper authorities in the Board, and after due considera- tion the latter requested the return of the ves.sels to an American port. Subse- quently tlie matter was held pending the conclusion of negotiations with the Peruvian Government relative to the operation by the American Government of ejXJeriiian steamers commandeered in Peruvian ports. American steamer " ProricJencia." — Confidential reports received by the War Trade Bo;ird indicated that members of the crew of the Prorideneia were en- gaged in snuiggling arms into :\[exic(i. and as a result of an investigation cer- tain members of the crew were taken into custody by the Treasury Department and later pleaded guilty to the charges placed against them and were sentenced tE5 3 i i others, but give a single total for all exports. Unmanufactured wool and woolen rags, both highly conserved because of the needs of the Army, show unusual reduction in exports during 1918. Fertilizers show decreases, which would undoubtedly have been greater but for the policy of rationing certain of the northern neutrals. Caustic soda and chlorate of potash are important ingredients in the manufacture of explosives and have been conserved for that purpose. Unfortunately, statistics for these commodities are not available prior to June 30, 1917, and the extent of export control during the war period is therefore not made evident by comparison with prewar data (p. 77). Sulphuric acid (Chart XIX). — Sulphuric acid was highly conserved to the extent that Government requirements were supplied first. The large quanti- ties exported to the Allies went largely to Canada, where it was used in the REPORT OF THE WAR TRADE BOARD. 75 manufacture of explosives, and, of course, tbese quantities were exported freely. The supply of sulphuric acid in the United States was adequate for all domestic and Allied needs and left a considerable surplus for the export trade This explains the fact that the quantities exported to "other coun- tries show no reduction during 1918. The most of this export went to Mexico bouth America, and Cuba for the use of mining companies, these countries being almost totally devoid of sulphur supplies. In each instance its export was affected under guaranties that it be used in ways that contributed to the advancement of the interests of the United States in the war (p. 78) Si ^^m mmm immm^§mm FACILITATING THE IMPORTATION INTO THE UNITED STATES OF ESSENTIAL COMMODITIES. The Difficulty of Obtaining Essential Commodities at the Time the United States Entered the War. Previous to the entry of the United States into the war, the Allied Governments, especially the British Government, had exercised con- siderable control over imports into the United States in order to keep the goods from eventually reaching the enemy through re- exportation qr from falling into the hands of enemy agents in the United States to be stored for use after the war or to be used as a basis of obtaining credits. Importers in the United States who iSee p. 73. 7d EEPORT OF THE WAR TRADE BOARD. desired to obtain from territory within Great Britain s control goods whose exportation Great Britain had restricted were obligecl (1) to apply for a license to have the goods shipped; ('2) to have the ship- ment consigned to some British official or agency designated by the British Government; and (3) to furnish a guaranty that the goods would not be reexported or sold again except under conditions pre- i^cribed by the British or Colonial Governments. In the case of some *,0 ^ rj O ^§3 ■d Z3 t8 >rS— ■« ■* ^r '^ '-' 55 3 ^^ goods permission to sell again had to be obtained ; in other cases the goods could be sold again, but only to a purchaser who would bind himself to the obligations imposed upon the original importer. The^e restrictions were onerous to the American business man. The difficulty on the part of the British Government of enforcing the guaranties, the natural desire not to be furnishing supplies to a neu- tral to such an extent that the neutral could export siiriilar supplies of its own, the necessary time incurred in investigating the relia- ^ See p. 74. REPORT OF THE WAR TRADE BOARD. 77 bihty of firms or individuals desiring to import, all combined to cause delays and retard imports. Early Private Attempts to Facilitate Imports. This state of affairs had led to the formation of certain trade or- ganizations which attempted to expedite their business by enterin I u CO z D O o I o o tn O QO ZO no oo ao O in o • See pp. 74-75. REPORT OF THE WAR TRADE BOARD. 79 dealing with a responsible trade association rather than with nu- merous more or less unknown individuals did expedite imports to a considerable degree for over a year. Other commodities, such as jute and certain jute products, animal hair, sheep and goat skins bearing wool or hair, cotton, cotton yarn, cotton waste', flax and linen, when imported from British territory were from time to time added to the articles for which the Textile AUiancS acted as inter- mediary between the British Government and the American im- porter. Other trade associations were formed from time to time. The extent to which this movement had progressed before the United States Government began to control foreign trade may bo seen from the following list of agreements on nonreexportation made between the British Government and American associations, and in force on May 1, 1917 : The Textile Alliance iiKreement covering wool and animal hair and jute and its products, with 929 firms adhering. The rul)ber guaranty, to which nearly 600 firms adhered. The tin guaranty, with more than 200 firms adhering. The leather guaranty, with more than 600 firms adhering. The antimony guaranty, with about 80 adhering firms. The asbestos guaranty. The tinning material guaranty. The mica guaranty. The metal guaranty, covering chromium ore, cobalt, spiegel, mag- nesium, wolfram, molybdenum, " scheelite," nickel, metal, and ferro- alloys coming from these minerals. The Division of Export Licenses in the Department of Commerce and later the Exports Administrative Board had attempted to aid these efforts to expedite imports of commodities which were essential to the needs of the United States. Contacts were made with the trade organizations already formed and the formation of new organi- zations encouraged. The Work of the War Trade Board in Facilitating Imports. 1. SECUEING RELAXATION OF THE EXPORT RESTRICTIONS OF THE ALLIES AND NEUTRALS. The War Trade Board continued the work thus begun. The agreements referred to above, although an improvement over the system which made each individual importer of goods controlled by Great Britain treat with the British Government, were not entirely satisfactory either to American importers or to the British Govern- ment. The necessity of securing a license from the British Govern- ment which caused delay and the point of view in granting or refus- ing the license was naturally British. On the other hand, it appears that guaranties against reexportation, especially in the absence of any limitation on imports, did not always accomplish the desired end. This is clearly shown in the case of the agreement with the Textile Alliance regarding wool and skins. In Bulletin No. 17 of the Tex- tile Alliance, issued February 23, 1917, is found the following state- ment : The application signed by Importers for permission to import througti the Textile Alliance (Inc.), and subsequent obligations to be signed before posses- sion can be obtained, provide specifically that the applicant agrees not to export articles so imported and certain products thereof. There is on the part of the Textile Alliance (Inc.) and Its allied associations a further moral obligation 80 EEPOKT OF THE WAE TRADE BOABD. contained in their agreement with the Board of Trade (British), that it will discourage to the best of its ability and by proper means the export from the United States of any wool, or animal hair, or tops, noils, yarns, rags or waste of same, wooled or haiivd skins, except as may be permitted and announced through the Textile Alliance (Inc.). Modifications of this control were later made whereby exports could be made to various parts of the British Empire, and these in some instances increased in 1917 so much that the total exports from the United States in said cases were greater than in 1916. More significant, however, is the fact that in spite of the efforts of the Al- liance, which were in general very successful, there were cases in which the exj)orts to the countries not included in the exceptions to the general rule regarding exports were greater in 1917 than in 1916. Such was the case with woolen rags, the exports for 1917 to the latter countries being 119 per cent in excess of those of the previous year. At the request of jute imjiorters, who had no trade association of their own, the Textile Alliance made arrangements with the British authorities to grant licenses for the shipment of jute and its prod- ucts from British territory, provided they were consigned to, or for acco'^nt of the Textile Alliance and were destined for recipients approved by the British Embassy at ^Vashington. In the bulletin of the Alliance issued July 26, 1916, which made this announcement, occurs this statement: "In the matter of exportations from the United States it must be borne in mind that if specific merchandise is received in consideration of a guaranty not to reexport to an un- approved destination, it would be a breach of faith to export similar merchandise not obtained under guaranty." A considerable number of exceptions were made in this case also, but disregarding the coun- tries for which exceptions were made, the exports of jute burlaps in the calendar vear 1917 increased more than 11 per cent over those of 1916. The Rubber Association of America i'^ a trade organization which has existed under various names since 1900. It had appointed a com- mittee known as the Euliber Control Committee which supervised rubber importations from the British Empire under the direction -of the British Government from January, 1915, to December, 1917. Nevertheless, the exports of guayule gum, gutta-percha, and India ]-ubber scrap showed an increase for the 12 months endins; December 31, 1917, of o\er 4,269 per cent over the exports for the previous year. These examples are not intended to throw discredit upon the trade associations, rather they are to be considered as exceptions to the general rule, but they illustrate the fact that guaranties not to re- export failed in some instances fully to accomplish all the desired results. The President had been authorized l)y section 11 of the trading with the enemy act to prohibit the importation of goods except at such tiine oi' times and under such regulations or orders as he might l)rcscribe. Acting upon this autho*i-ity he issued a proclamation on November 2S. 1917, prohibiting the importation into the United States or .its territorial possessions of the articles enumerated in the proclamation without a license from the War Trade Board. The list comprised raw materials and foodstuffs vital to the United States and the Allies in prosecuting the w^ar. The War Trade Board was KKl-OKX 01' THE WAR TRADE BOARD. 81 now able to take one more step toward facilitating the importation of essential commodities controlled by the Allies. Included in this list were all of the articles whose importation into the United States it was desired to increase. The commodities especially desired were : Antimony. Plnx. Molybdenum. Sisal. Castor oil. Hemp. Nickel. Spiegeleisen. Oistor-oil beans. Hides and sl13. It IS consequently not surprising that the imi^orts for the second halt of 1913 fell considerably below those of the first half of that year and that the imports for the first half of 1914 increased to such an extent. Tlie outbreak of tlie war in August, 1914, Avith the resulting paralysis of commerce, probablv reduced the imports of wool for the second half of the year 1914 below what they otherwise would have been. In addition to this, however, was the fact that the British authorities were maintaining control o\-er the exports of this very essential material. That the arrangement made by tlie Textile Alhance early in 1915 enabled the United States to obtain wool from British sources the graph very clearly proves. The most noticeable feature of the graph, however, is the tremendous decrease in the amount of wool imported in the second half of 1916, as compared with the first half of that year. Although there was a reaction upward during the next year, nevertheless the imports of wool from British sources for the entire year 1917 were only '35,932 long tons, this amount being but little more than 40 per cent of the amount imported during the first six months of 191fi and only one-third of the amount imported during the year 1915. It seems clear that for one reason or another Great Britain did not deem it expedient to allow wool to be shipped into the United States. That the War Trade Board was successful in securing some relaxation of this strict control is indicated by the fact.that the imports in 1918 were over 56 per cent greater than they were in 1917. Burlap hags from. British sources. — Burlap bags, which are matle from jute, have been in great demand since the war began in 1914. These bags were used by the millions as sandbags in the con- struction of trenches. For a considerable period the orders for trench bags ran as high as 50,000,000 a month. The use of burlap and burlap bags as packing material and containers had also greatly increased during the war owing to the necessity of saving wooden cases and of reducing the bulk of oversea shipments. Potatoes, grain, sugar, coffee, and nitrates are among the important articles shipped in bags. India is practically the sole producer of jute, and a large proportion of the world's burlap and burlap bags is produced at Calcutta. In fact, during the war India increased greatly her production of jute manufactures and reduced the amount of raw jute exported. The second largest jute manufacturing plant is located at Dundee, Scotland. Previous to the war this plant exported 43 j^er cent of its product. During the war the British Government took its entire output. In addition to this the British placed an embargo upon the exportation without a special license of jute and its products from India to all countries except the United Kingdom and British possessions. 1 For a more complete discu-fliou of this arranp;ement made by the Textile Alliance with the British Government see p. 77. 84 REPORT or THE WAR TRADE BOARD. As already indicated =• the Textile Alliance in July, 1916, entered into an agreement with the British authorities whereby licenses were granted for shipments of jute and its products from British territory U.S. IMPORTS OF JUTE BAGS FROM THE UNITED KINGDOM AND BRITISH POSSESSIONS BY CUJARTERS FOR CALENDAR YEARS 1516-1917-'9J8 POUNDS ESOOOpOO'-- 20,000.000— ISBOOpOO ■ lO.OOO.OOO' bJk. if consigned to, or for account of, the Textile Alliance and pro- vided that the shipments were destined for recipients approved by ' £ee p. 80. REPORT OF THE WAR TRADE BOARD. 85 the British Embassy at Washington. This arrangement with slight modification was adopted by the War Trade Board. The result of this policy is shown by the graph. In spite of the fact that in Octo- ber, 1918, the War Trade Board practically placed an embargo upon the importation of burlaps, burlap bags, and jute, the im- ports from British sources of burlap or jute bags in 1918 w^ere nearly half a million pounds larger than those of 1917. This occurred in spite of the tremendous demand for bags in Europe, the United States Government itself placing an order for 100,000,000 bags to be delivered in France. As the average weight of these bags is about 2i pounds, the aggregate weight was about 250,000,000 pounds. Thus if the quantity from British sources delivered directly to the American Expeditionary Forces in 1918 be added to that imported into the United States, the amount of burlap bags secured from British sources would rise far above the amount secured in 1916. That the actual imports under the conditions should have been as large as they were indicates that the British relaxed in favor of the Uiiited States the restrictions which had been placed upon their exportation from British territory. Tin from Bvithlx sources. — Tin was another very important com- modity the principal source of production of which was in British hands. The demand for tin containers for food to be shipped to the military and naval forces of the United States was tremendous. The principal source of tin is the Straits Settlements. Tlie imports of tin into the ITnited States from the Straits Settlements fell steadilv each quarter in 1917, so that for the last three months the amount was less than two-thirds of the amount which came during the first quarter. The imports for the first half of 1917 were 13,607 long tons; for the second half only 10,141 long tons. The eifect of British control is here seen. Contrast these figures with those for 1918. In the first six months imports were 14,838 long tons and in -the last six months they increased to 17,261 long tons. Thus the second half of 1918 showed a 70 per cent increase over the second half of 1917. Any hesitation which Great Britain might have felt in permitting the shipment of tin to the United States was entirely dispelled by the fact that the United States took steps to control the imports of this important commodity. The President's proclamation of November 28, 1917, prohibited the importation of certain articles, including tin, except under licensed By one of the first rulings of the War Trade Board after this date, no license was to be issued for the importation of tin unless the bill of lading was indorsed to the American Iron and Steel Institute. Before this organization would release a ship- ment of tin to an importer, the latter was required to give such guar- anties as the War Trade Board might require. The figures show the success of this policy. (See graph on p. 86.) Fl-ax from British sources. — As in the case of tin imports from British sources, the flax importations into this country from territory under British control fell steadily from 858 long tons for the first ((uarter of 1917 to 390 long tons for the first quarter of 1918. They then increased more rapidly than they had fallen, so that for the last three months of 1918 there were 3,207 long tons of flax im- ported into this country from (erritory under British control. Wliereas in the lai-t quarter of 1917 the imports of flax fi'om Britisli 86 REPORT OF THE WAR TRADE BOARD. territory were less than 60 per cent of the imports lor the fii^t ouarter, the imports for the last quarter of 1918 were over eight times as large as the imports for the first three months ot 1918. U.S. IMPORTS OFTIN ANDTIN CONCENTRATES FROM the: STRAITS SETTLEMENTS, BYaUARTERS.FOR CALENDAR YEARS .1917M91S 9012. &355 832.6 T'nless control had been exercised over these imports by the Ignited States through the Board, the Britisb authorities would never have permitted this great increase during the year 191S. This ccmtrol REPORT OF THE WAR TRADE BOARD. 87 was exercised by the War Trade Board in cooperation witli the Textile Alliance. No import licenses were issued on and after De- cember 15, 1917, unless the bill of lading was indorsed to this or- U.S. IMPORTS OF FLAX FROM THE UNITED KINGDOM AND BRITISH POSSESSIONS, BY QUART ERS, FOB. CALENDAR YEARS .1917&13ie. LONG TONS 3000 ganization ; and the importer was required to furnish to the Textile Alliance a guaranty acceptable to the War Trade Board before the goods imported on his license were released to him. REPORT OF THE WAR TRADE BOARD. C'hrom,e ore from French sources. — Chrome ore or chromite is used to harden steel and consequently was in great demand during the war. Its principal military uses were for mailing ferrochrome U.S. IMPORTS OF CHROMITE FROM FRENCH OCEANIA, BY 6 MONTHS PERIODS.FOR CALENDAR YEARS 1917&1918 LONG TONS 20,000 O O M V7ZZ7. 15,000 10,000 p. 5,000 for steel used in armor plates, armor-piercing projectiles, hio-h- speed steel-cuttmg tools, and aeroplane motors. Chrome steef is used especially in the manufacture of automobiles, and chrome ore REPORT OF THE WAR TRADE BOARD. 89 in making refractory brick for blast furnaces and in making chemi- cals for paints, dyes, and leather tanning. One of the principal sources for chrome ore is New Caledonia, a French possession in French Oceania. During the year 1917 there were only 10,300 long tons of chromite imported into the United States from French Oceania, and this came in ^lay. On February 1, 1918, the War Trade Board put into effect a ruling that import licenses should be granted for chrome only on the indorsement of the bill of lading to the American Iron and Steel Institute. In this way the Board exercised the same kind of control over the importation of chrome that it exercised over the importation of tin.^ That this policy was completely successful in satisfying the French that chrome shipped to the United States would be propei-ly utilized appears from the fact that during the first half of 1918 more than 20,000 tons had come from New Caledonia. Early in June, 1918, because of the increased domestic jDroduction and the long haul in- volved, the War Trade Board limited the importation of chromite from New Caledonia. In spite of this restriction the imports for the second half of 1918 from French Oceania were over 5,300 long tons, and if the imports from Australia be added to this, as they should be, since they originated in New Caledonia, the amount rises to over 17,000 long tons. In other words, the United States. after establishing control over the imports of chrome ore, was able to secure from New Caledonia even more than it desired. Emery from. French source x. — Emery ore is used in grinding, I'ough dressing, shaping, and polishing steel and glass. It Avas espe- cially needed in the United States in the production of optical glass for our Army and Navy. The finer grades of emery have always been imported into the United States, Turkey being the principal sour. e. With the Turkish supply shut off the remaining sources were en- tirely within the control of England and France. Previous to the entrance of the United States into the war these countries so re- stricted the exportation of emery ore that the United States was practically without any of the finer grades. A comparison of the figures for United States imports of emery ore for the two years previous to the war with the figures for the calendar years 1916 and 1917 indicates the situation very clearly. From July 1, 1912, to June 30, 191-I-, imports totaled 33,161 long tons. The ( orrespondnig figures for 1916 and 1917 amounted to 8,161 long tons, of whi'li only 650 were imported in 1917. Of these 650 long tons 3Sl were shipped from Spain and 266 from England, none being nuported from France. „ , , n at Negotiations wath the French Government for the release of JNaxos emery began as far back as July, 1917. Through the efforts of the Bureau of Foreign and Domestic Commerce, the Emery Corundum Importers and Manufacturers Association was organized to cooperate in the securing and distribution of Naxos emery which it was ex- pected would be secured from the French. The negotiaticns con- tinued until on November 29, 1917, the American Ambassador stated that the French Minister of Blockade told him that 3,000 tons ot emery ore had been set aside at Marseilles for the disposal ot the American authorities. This did not actually arrive m New \ ork until February, 1918, the actual amount received being 2,959 l ong ton s. ' s,<. p. s.-.. 90 REPORT OF THE WAR TRADE BOARD. Estimates for the amount of Naxos emeiy needed for 1918 were based on answers to a questionnaire sent out by the War Trade Board. From the replies received it appeared that 6,800 tons would be re- U.S. IMPORTS OF EMERY ORE FOR CALENDAR YEARS I9I7&I9I8 1917 ]918 LONG TONS lO 1 O 1 >o (C 1 IT) oa (0 1 00' 1 ^ 1 1 I 1 1 ' 1 li ■i 4,9 56 1 1 3,5 54- o o 1 1 o o O o o o o o o o. o. o. o. N ■<■ v£ oO o LEGEND FROM COUNTRIES UNDER BRITISH CONTROL FROM COUNTRIES UNDER FRENCH CONTROL FROM OTHER COUNTRIES D quired. Representations to this effect were made at Paris and 3,400 tons of emery ore were allotted in February by the Interallied Metal Conference to the United States for the first six months of 1918. REPOET OF THE WAR TRADE BOARD. 91 The shipments against this amount did not begin to arrive until the second half of the year. The actual amount recei\'ed from the French during 1918 was 4,956 long tons. AVe also received 3,544 long tons fi-om English sources, making a total of 8,510 long tons of emery ore imported during the year. Again, the fact that the French and English were assured that the United States required this emery and that it would he utilized in a way most conducive to the success- ful prosecution of the war were influential factors in securing this supply. Tin from the Dutch Enxt Indies. — As already stated, tin was a much-needed commodity and we were eager to obtain all that was possible. In addition to the Straits Settlements, the Dutch East Indies are an important souice for this material. The Dutch East Indies wished to export to the United States many commodities which the War Trade Board had embargoed for the purpose of conserving tonnage. There were also certain commodities which the Dutch East Indies desired to import, but which they were unable to secure because of export restrictions. Realizing the possibility of using their own products as a means of bargaining, a pi'ohibition was issued against the exportation without a license of certain articles. Of these, quinine salts, cinchona bark (from which quinine is manu- factured), tin, tin ore, and kapok were the more important. There was also the fear on the part of the Dutch authorities that the United States might requisition the Dutcli vessels coming from the Dutch East Indies or that the vessels Avould be held up in some way. Assurances were given by the United States Government to the Dutch Goxernment that Dutch steamers which were in Dutch colonial ports on March 21, 1918, would not be requisitioned; and furthermore, the War Ti-ade Board agreed that bunker licenses would be granted without difficulty and export licenses would not be revoked on goods destined for the Dutch East Indies. Still the United State-; was unable to obtain tin and quinine in the desired quantities. In June the War Trade Board began to hold up licenses for exports to the Dutch East Indies, but early in July this policy was confined to exports of iron and steel and their products, machinery, tin plate, caustic soda, and industrial explosives. This situation continued until, on August 9, 1918, a representative of the War Trade Board and the Dutch charge d'affaires came to a working agreement. By this agreement the War Trade Board was to issue export licenses for certain goods very much desired by the Dutch East Indies which were being held at San Francisco and New York. Xew export licenses were to be issued for other goods for which pre- vious licenses had expired, and for the future no distinction in the granting of licenses was to be made between the Dutch Ea.st Indies and other neutral countries outside of Europe. On the other hand, the Dutch East Indies were to endeavor to bring their tin exports to the United States during 1918 up to the amount exported the previous vear, to ship the normal amounts of quinine, and to facilitate in every way until December 1, 1918, the shipment of sugar to the east coast of the United States.' A study of the graph shows that in the fii'st six months of 1917 the United States imported from the Dutch East Indies 7,375 long I Ni. imports of sugar from the Dutch East Indies were entered at any of the eastern ports during the last six months of 1918. 92 REPORT OF THE WAR TRADE BOARD. tons of tin. During the first six months of 1918 only 3,616 long tons had come from this source. This was less than half the amount re- ceived during the same period in 1917. As a result of the modus U.S. IMPORTS OFTIN ANDTIN CONCENTRATES FROM THE DUTCH EAST INDIES, BY QUARTERS, FOR CALENDAR YEARS 1917*1918. LONGTON^ 5,000 4,948 Vivendi, imports jumped from 1,532 long tons during the second quarter of 1918 to 4,948 long tons for the third quarter. On Novem- ber 1 further licenses for the importation of pig tin into the United REPORT OF THE WAR TRADE BOARD. 93 States -were restricted to shipments purchased before October 1 and to shipments consigned to the United States Steel Products Co. In- asmuch as the latter made no new purchases of pig tin, this restriction furnishes the explanation for the sharp fall in imports during the last quarter. Quinine and cinc1io)ia. hark from, the Dutch East LncJies. — The neces- sity of obtaining quinine had been grciit the world over. The demands for this drug had been greatl}' increased by the war and then came the influenza scourge \Yhich swept over Europe and the United States. This reduced stocks of quinine to the danger point. Cinchona bark is the material from which quinine is made. With the greatly in- creased demand for this commodity in the United States the im- ports from the Dutch East Indies, which had been nil for the first half of 1917, rose to 663,565 pounds in the last quarter. The imports fell off during the months of December, 1917, and January and Feb- ruary, 1918, but again increased, until in May alone 626,323 pounds were imported. Then the effect of the policy of requiring export licenses for the exportation of cinchona bark, inaugurated by the Dutch East Indies during the latter part of April, began to appear and the imports of this commodity into the United States from the Dutch East Indies for the three months of June, July, and August were only 605,344 pounds. The Dutch were afraid that the manu- facture of quinine would be dcAeloped during the war by other countries to tlie detriment of their own industry after the war. This was a natural feeling on tlieir part and the Associated Governments found that they would be forced to reckon with it if tliey desired to obtain greater supplies of cinchona bark. This led the British, French, and Italian Governments to authorize the chairman of the Association of Quinine Manufacturers in Allied Countries to enter into an agreement as their agent with representatives of the Dutch companies engaged in the production of quinine relative to the amount which the Dutch would supply to the Allied Governments. A representative of the United States War Trade Board was present and it was agreed that the chairman of the association should execute the agreement with tlie Dutch representatives on behalf of the United States Government or certain American firms engaged in the manufacture of quinine appi-oved by the United States Gov- ernment. The official authorization for the chairman to act as such agent was to be given by a separate document to be signed at some later time. If, however, such authorization were not received within six months from the signing of the agreement, the United Kingdom was to be entitled to all the rights and to be bound to carry out all the obligations of the United States Government or the approved American quinine manufacturers. The War Trade Board subse- quently approved the signing of the above-mentioned authorization by a representative of the Powers- Weightman Eosengarten Co. of Philadelphia and McKesson and Robins of New York. By the terms of the agreement the Dutch quinine companies agreed to sell to the Associated Governments in each year during the con- tinuance of the agreement 240,000 kilograms of sulphate of quinine or its equivalent in other forms of quinine salts, at the option of the ^ buyers. The Associated Governments were to allocate this supply, and 94 REPORT OF THE WAR TRADE BOARD. Great Britain 80,000 Left for future allocatioi? 8, 000 all except the United States agreed not to reexport to any neutral country. The Associated Governments could allocate the 240,000 kilo- grams among themselves as they should determine. The Dutch com- panies agreed to supply Italy with 10,000 kilograms of sulphate of quinine or other salts in addition to the amount that should be allo- cated to them by the Associated Governments. By the decision of the Interallied Quinine Committee these 240,000 kilograms were allo- cated as follows: United States 40,000 Italy 6.5, 000 France 25. 000 The agreement further stipulated that the Dutch companies would sell such quantities of cinchona bark as should contain 190,000 kilograms of sulphate of quinine, the same to be allocated as follows : United States, 110,000 kilograms ; France, 65,000 kilograms; and British India, 15,000 kilograms. The Associated Governments guar- anteed that none of this bark should be disposed of to any factory which did not receive bark through the Kina Bureau in Amsterdam. It will be seen that as a result of this agreement the United States was to receive yearly from the Dutch East Indies 40,000 kilograms of quinine and enough cinchona bark to produce 110,000 kilograms additional. The statistics sliowing the amount of imports of quinine from the Dutch East Indies into the United States by months during the year 1918 reflect the vacillating policy of the Dutch East Indies. Viiit( ^ CD m > ■Z. 73 > -< m > 7^ o X H X ^O > c S X 00 m > 00 H Z D m ing that from 5 to 6 per cent of the total weight of the bark remains of quinine, these imports produced from 44,000 to 53,000 pounds of quinine. KBPORT OF THE WAK TEADE BOAED. 97 2. THE ACQUISITIOX OF ESSENTIAL SUPPLIES BT SPECIAL EEPKESENTATKJXS TO FOREIGN GOVEEMMENTS IX CASES WHERE THE IMPORTER WAS UN ABLE TO OBTAIN THE DESIRED GOODS. There have been many cases in which foreign Governments have refused to grant export licenses or in other wny.s have prevented the shipment of goods essential to the successful prosecution of the war on the part of the United States. These cases mav be classified into four types : (1) Inability on the part of the importer to secure an export license from the Government of the country from which he desired to ship the goods. (2) Inability to secure a high priority rating for the desired goods to be manufactured or shipped. (3) Inability to obtain from British officials in border neutrals shipping permits without which the goods would be in danger of being seized by British blockading fleet. (4) Impossibility of foreign manufacturer supplying American importer with desired goods because of the inability of the manufacturer to secure from some other country the necessary equipment. The following cases have been chosen to illustrate these types : Inability to Heeure an export license for shipment of the goods. — The demand for opium, morphine, and. various allied products was enormous during the war. The United States relied upon England for a supply of these drugs. About October 1, 1918, the British Government began to be less liberal in granting export licenses for these drugs. The War Trade Board representative in London, was informed that the British supplies were short and therefore the amounts requested for November would be cut. However, the de- mands of the United States military forces were great and the out- break of influenza was serious. The stocks in the United States were dangerously low, and consequently strong representations were made to the British Government to permit an adequate supply to be ex- ported to this country. As a result, by the end of December the stocks in the United States were sufficient to meet the requirements. There were some instances in which American importers were caused needless delay and expense by foreign shippers who claimed inability to obtain an export license or a high priority rating. Such cases were investigated when brought to the attention of the Board, and it was able to expedite the shipment of goods when there was no valid reason for delay. Inability to secure a high -priority rating for the desired goods to he 7nanu.factii/red or shipped. — One of the early cases in which desired imports were unobtainable because of inability to obtain a high priority rating on. the goods to be manufactured or shipped was that of the Detroit Edisoii Co. This company endeavored to secure air coolers from an English manufacturer. The English firm was unable to accept the order because of the system of priority which made work for the English Government come first, other work con- tributing to winning the war second, and civilian work last. Through the efforts of the War Trade Board in presenting evidence to the British Government that these particular coolers could not be manu- 103584—20 8 98 KEPOET OF THE WAE TRADE BOARD. factured in the United States, that no others would answer as well the purpose for which these were to be used, and that the plant desir- ing the coolers was furnishing current for the production of war materials for the United States Government, the British Government permitted the manufacture and shipment of the coolers. The Army and Navy had needed large supplies of optical glass. Its production in the United States was not sufficient "to meet these needs and it was necessary to import considerable quantities from France. The French Government assumed absolute control of this industry and no French manufacturer was permitted to manufac- ture for ex^Dort without the authority of the Service Geographique. Much of the glass which was imported from France in the form of blanks was consigned to an American manufacturer to finish into the desired form. Before the Service Geographique would authorize the manufacture of any order for optical glass to be shipped to the United States it was necessary that information regarding the order be obtained and that a recommendation be made by the War Trade Board representative in France that the order be filled. Until the middle of November the necessary information regarding the use to which the glass was to be put was obtained by the military optical glass section of the War Industries Board which submitted it with their recommendation to the War Trade Board. After this date the Board obtained the necessary information. At all times it was neces- sary for the War Trade Board representative in France to make representations to the Service Geographique and to obtain their con- sent to the manufacture and shipment of this essential commodity. The obtaining of meggers and bridge meggers from England was very, difficult. These are electrical instruments used for testing the resistance of insulating material. They were called for by the Panama Canal, the Navy, the Emergency Fleet Corporation, tele- phone and telegraph companies, shipbuilding concerns, and other corporations. The electrical equipment of the Panama Canal was in danger of becoming inefficient because of the lack of these instru- ments. The standard instrument and the one almost universally used is manufactured by an English concern. This concern since the outbreak of the war was handicapped by the scarcity of labor and material, and most of the jolant was taken over for the manu- facture of munitions. Their output was reduced to 9 or 10 sets per week at the most. It is clear why England was loath to allow the manufacture for exportation of aiiy of these instruments. The United States Na^'y alone desired to obtain 300 meggers. The War Trade Board obtained from the War Industries Board the priority rating which the orders would have been granted in the United States, and the War Trade Board representative in London took up the problem with the British authorities. As a result the British gave an "A " rating for the Panama Canal order and for the most urgent of the Navy orders. They also granted high ratings for some of the shipbuilding corporations. Inability to obtain from British officials shipping pei^mits for ship- ment of goods from a border neutral. — The British desired to stop all possibility of exportation of goods by Germany by means of ship- ment through the border neutrals. They, therefore, established a system of shipping permits, and these permits were not granted to any shipper for goods made by the Germans or their allies or for REPORT OF THE WAR TRADE BOARD. 99 goods made from materials coming from the Central Powers. A New York corporation ordered 100 Schrotz's tonometers from a Nor- wegian firm. Tonometers are instruments used for testing the ten- sion of the eye. The New York firm wanted them for the medical departments of the Army and Navy, and, since they were of a type not manufactured in the United States, attempted to secure them from Norway. However, some of the material from which thej were made was enemy material. Owing to this fact, the British authorities refused to grant a shipping permit. The New York cor- poration appealed to the War Trade Board. The case was investi- gated, the facts found to be as represented, and the War Trade Board representative in London asked to procure the release of the ship- ment if possible. As a result of his representations, the British official at Christiania was instructed to issue a permit allowing this order to be shipped. Impossibility of foreign manufacturer supplying American im- porter because of inability to secure from som^e other country the nec- essary equipment. — A very interesting case arose in connection witli the orders for steamships placed by the Emergency Fleet Corpora- tion with certain Japanese shipbuilders. In the construction of these steamships a number of aspinale marine governors and several sets of piston packing rings and springs were reqnii'c.d. The Osaka Iron Works placed an order for this equipment with an English concern. The latter being unable to fill the order because of British restrictions on the manufacture and exportation of such articles, an appeal was made to the War Trade Board to use its influence in procuring from the British authorities a sufficiently high priority rating to enable the Britsh firm to manufacture the goods and secure an export license permitting the goods to be shipped to Japan after they had been manu- factured. The War Trade Board succeeded in convincing the Brit- ish authorities of the necessity of this order, and permission was granted for the manufacture and export of the desired goods. Among the many things imported into the country through the efforts of the War Trade Board were : Linen line yarn for gun cartridge belts. Linen yarns for the manufacture of gilled netting to be sold to fisher- men under the direction of the Food Administration. Linen thread for the manufacture of fire ho.se for the iirotection of Government buildings and plant.? engaged in the production of war materials. Sewing needles used in leather s<-wing machines making saddles, am- bulance harness, artillery harness, gun slings, etc. Jute brattice cloth for coal mining on the indorsement of the Fuel Administration. Blue asbestos yarn for the manufacture of special instruments iiseil for electi-ical welding by the Navy Department. Hpindles and fliers es.'iential for uninterrupted production of textiles for the Government. :!. AID IN OBTAIXING SHIPPING SPACE. In some cases an importer was prevented frfnu bringing in goods through his inability to secure shipping space. If the goods to be imported were of sufficient importance to justify the action, the War Trade Board used its influence with the Shipping Board to obtam the shipping space necessary for their importation. 100 EBPORT OF THE WAR TRADE BOARD. Control Over the Distribution of Imports. The necessity for the exercise of control over certain imports by the United States in order to secure a relaxation on the part of the Allies of their restrictions upon the exportation of these commodities has already been discussed. There was another closely related reason for this control. This was the necessity of furnishing the Army and Navy with all the materials they required. If anyone had to go without, it should be the civilian consumers and those desiring the materials for purely commercial purposes. The need of control in order to prevent speculation and hoarding will be discussed later.^ The discussion of the method of allocation of the surplus which might remain after the needs of the Army and Navy had been met will be found in the section discussing the Bureau of Imports.^ The point which it is desired to make here is that the War Trade Board through its power to control imports was able to see that the Army and Navy requirements were met first and that the manufacturers who were producing for the Government should receive all that was necessary in order to perform their contracts. Thus after April 10, 1918, no licenses for the importation of nitrate of soda were issued except to firms previously approved by the War Industries Board, and the applicants were required to execute an agreement to use tliis material as directed by the War Industries Board. On May 24, 1918, the War Trade Board passed a ruling re- stricting the amounts of tagua nuts which might be imported for the remainder of the year. All tagua nuts permitted to come from Ecuador and Colombia were to be used for governmental purposes. Furthermore, no licenses were to be issued except upon condition that all waste arising in the manufacture of articles from the nuts should be turned over to the Gas Defense Service of the United States Army. In the allocation of rubber, manufacturing plants engaged in producing goods for the United States Government were given all the supplies of raw material which they needed to fill Government contracts. After these needs were supplied, the remainder of the rubber imports permitted was prorated among the various manu- factui'crs on the basis of their consumption of rubber during the calendar year 1917. On May 6 the War Trade Board passed a reso- lution that no license should be given to import coconuts until the applicant had agreed to deliver or cause to be delivered to the Gas Defense Service 35 i^ounds of shells for each 150 pounds of coconuts imported fi-om the West Indies and 40 jDounds of shells for each 150 11' unds of coconuts imported from the islands of the Pacific Ocean. These examples show the policy of the Board in so regulating im- ports that the war needs of the Government should be fully met. Regulation of Imports to Meet the Needs of the Allies or Neutrals. AVherever it appeared that the Allies needed a commodity more than the United States, it was the policy of the War Trade Board to restrict the importation of that commodity into the United States. The aim was to regulate the trade of the United States in such a way as to further the most successful prosecution of the war, and the needs of the Allies had to be considered as well as bur own. ' See p. 103. = See pp. 316-319. REPORT OF THE WAR TRADE BOARD. 101 Imports from Europe. — Consequently no licenses were issued for imports of breadstuffs, gelatin and manufactures thereof, vegetables, or vegetable oils to be shipped from Europe after April 14, 1918. Similarly no licenses for shipments from Europe after May 13, 1918, ■were granted for animal oils, dairy products, fish (except from Scan- dinavia), meat products, and preserved meats, since these commodi- ties were needed in Europe much more than here. It is interesting to note, moreover, that wheneNcr this policy caused serious hardship to the people of any country the War Trade Board was ready to modify its rulings if the modification would not interfere with the war program. As examples of this readiness, there were the cases of garlic from Italy, cvired and presei'\'ed mackerel and herring from the United Kingdom, and Roquefort cheese from France. The Italian Government made representations that the embargo upon the importation of garlic into the United States would inflict serious losses upon certain districts of Italy in which garlic had already been planted with the expectation of being able to export to the United States. The War Trade Board there- fore so modified the embargo placed upon the importations of vege- tables as to permit the importation from Italy of garlic from the 1918 crop. This modification was made on the understanding that the acreage of the 1919 crop of garlic would be restricted so that the land might be used for the production of food to be consumed in Italy. Thus the War Trade Board maintained the principle under which the original restriction had been imposed and at the same time gave Italy the desired relief for the 1918 harvest. This modifi- cation was made in the last half of August. No garlic arrived in this country until October, but during the last three months of the year nearly 939,000 pounds were imported. Similarly the British authorities requested that a modification be made permitting import Hcenses to be granted for cured and preserved mackerel and herring shipped from the United Kingdom. It appeared that there was not a sufficient European market to consume all the catch of mackerel and herring in the vicinity of the British Isles. The main industry of certain communities, especially in Ireland, is the curing of these fish, and they depend upon the American market for the sale of their product. Accordingly the request of the British authorities was granted. A similar request was made by the French as regards Roquefort cheese, and upon similar grounds this request was also granted by the War Trade Board. Regulation of imports of corn.— One of the most mterestmg cases of the restriction of imports into this country to meet the needs of foreign countries was the regulation of corn. The first import em- bargo placed on any commodity after the President's proclamation of February 14, 1918, establishing the license system for all imports, was the temporary withholding of licenses for the importation of corn. This was done during the first three weeks of March. The reason for this temporary embargo was to enable the United States to make good its obligations under the Swiss agreement to supply Switzerland with wheat. By the terms of this agreement Switzer- land was guaranteed from 160,000 to 180,000 tons of wheat durmg the period December 1, 1917, until September 1, 1918, and this amount was to be distributed as evenly as possible throughout this period. The temporary embargo on the importation of corn into 102 REPORT OF THE WAR TRADE BOARD. this country was intended to stimulate the movement of wheat from Argentina, as the cargo space which would otherwise have been used for corn could now be taken up with shipment of wheat. U.S. IMPORTS OFCORN FROM ARGENTINA BY MONTHS.FOR CALENDAR YEAR 1918. BUSHELS. 2 800.000- 600,000 400,000 — 20(3,000 On March 23, 1918, the ruling which provided for thus withholding licenses for corn was superseded by one requiring that all applica- tions for the miportation of wheat, corn, rye, barley, oats, and buck- naii-UKT OF THE WAR TEADE BOARD. 103 wheat should be referred to the Food Administration before final action upon them was' taken. On and after April 15 importation of corn from overseas was embargoed. On September 26 the Board, at the request of the Food ^Vdministration, modified the embargo on the importation of corn from overseas so as to permit the importation of corn from the Argentine Eepublic into the United States provided it was purchased for the Food Administration Grain Corporation. It was also stipulated that licenses should be issued only for shipments agreed upon jointly by the Food Administration and the Shipping Board. The quantity of corn thus licensed for import under this ruling permitted the release of an equivalent quantity of corn already in the United States for the use of the Commission for Relief in Belgium. The graph brings out the history of these rulings. Note the drop in imports during March and April with the temporary rise after the temporary embargo. Then the effect of placing corn on List No. 1 of restricted imports is seen in June, July, August, and September. In October the result of the modification of the embargo is seen. CHECKINa SPECULATION AND HOARDING AND KEGTJLATING PRICES THROITGH CONTROL OF IMPORTS. The Necessity for Control. The policy of restricting imports into the United States tended to raise prices throughout the country. There was a tendency also for those who were allowed to import limited amounts of a given com- modity to attempt to profiteer. It was natural that some should endeavor to hoard either for the purpose of assuring themselves of sufficient quantity to meet their needs or with the expectation of selling at a considerably advanced price at some future time. The Government could not properly inaugurate a policy tending to create such practices without at least attempting to counteract these tenden- cies. Some would benefit at the expense of others ; some would have all the supplies they needed whereas their competitors who patrioti- cally took their chance and bought as they actually needed would find themselves with no supplies. Moreover, not only would the ordniary buyer or consumer be forced to pay high prices, but the Government, which was the heaviest buyer and the biggest consumer m the market, would have its financial burdens unduly increased. Checking of Hoarding and Speculation. The War Trade Board therefore took steps to avoid these evils as far as possible. It attempted to prevent hoarding and speculation by means of its control over the granting of import licenses lor example, before a license was granted for the importation of asbestos, the importer was required to execute an agi-eement, containing the provision, "We agree that the said asbestos is to be used for our own manufacturing use and not for hoarding or speculative pur- ^"in^the case of pig tin, chloride of tin, and tin ore, a more elaborate system of guaranties was put into operation as early as November, 1917 In this case the American Iron and Steel Institute cooperated 104 REPORT OF THE WAR TRADE BOARD. with the War Trade. Board. The following three forms of guaranty were drawn up : Form No. 1 — Importing consumer's guaranty. — This was a guaranty on the part of an importing consumer not to sell the pig tin, chloride of tin, or tin ore received to any person, but to use it for his own manufacturing purposes. Form No. 'S— Importer's and consumer's guaranty. — In this form the importer stated that he had sold the goods to a consumer whom he named and that the buyer had signed a guaranty. On the back of the same form was a guaranty similar to that in Form 1, which the buyer signed. Form No. 3 — Importer's and stock or jobber's guaranty. — In this form the importer, as in Form 2, gave the name of the person to whom he had sold the goods and stated that this person's guaranty might be found on the back of the form. In this case the buyer was not a manufacturer, but a jobber. In the guaranty which he signed he stated that he was not buying the goods for speculative purposes nor for resale to other jobbers. He also agreed not to sell the same to any person without satisfying himself that the goods were to be used exchisively for industrial purposes, and that he would file with the American Iron and Steel Institute before de- livery the consumer's guaranty for every sale of 5 tons or multiple thereof. In each of these forms there ^-^as a clause jjroviding that all the books, records, and documents of e^^ery kind relating in any way to transactions in these commodities engaged in by the guarantor would be ]:)roduced for inspection by any authorized officer of the United States Government. In this way the acute situation which had arisen in the case of pig tin because of speculation was relieved. It was the policy of the War Trade Board to refuse to grant licenses for new shipments to im- porters who could not show that the goods which they had previously been permitted to import had been put to a proper use and were not being hoarded or held for speculative purposes. Metliods Used to Kegulate Prices. In all cases in vhich the War Trade Board passed rulings which aimed to control prices in any way, it took such action at the request of some other department of the Government The gTeater part of the price control so exercised was accomplished through this power to exact some form of agreement from the applicant for an import license. This agreement was either in the form of a guaranty or an option. Guaranty. — By a resolution of the War Trade Board on August 22, 1918, the licensing authorities were authorized to require an agreement that applicants would not sell wooled or pickled sheep- skins at a ]5rice in excess of the price established by the price-fixing committee appointed by the President. In the case of sugar the applicant for an import license was required to give a guaranty that he would not sell the sugar to any party at any price without first REPORT OF THE WAR TRADE BOARD. 105 securing the approval of the Food Administration. A similar guar- anty was required from an applicant for license to import wheat flour. Late in September a ruling was passed limiting the amount of varnish gums which might be imported for the remainder of the year 1918. It was further provided that the amounts allowed to enter should be allocated in accordance with the recommendations of the War Industries Board as to distribution and price. This was similar to the War Trade Board ruling passed May '27 restricting the amount of asphalt which could be imported into tlic United States during 1918, and providing that the details of price should be ar- ranged in conference with the War Industries Board. Option. — The obtaining of an option giving the United States Gov- ernment the power to buy the imported goods at a certain price was a form of agreement commonly used. The first case of this kind was the wool option. On December 15, 1917, the wool regulations weic issued. The second section of the agreement prescribed hy these regu- lations provided that the United States Government should have the option to purchase all or any of the wool proposed to be imported at a price equivalent to 5 per cent less than the prices of July 30, 1917. This option was to hold for 10 days after the customhouse entry of the wool, and, as long as any part of the shipment still remained unsold, the Government was to have the right to purchase that part at the above price. This method of procedure was modi- fied a few weeks later so that the same option was effective, but was made through the medium of the Textile Alliance. The wool im- porter was required to indorse his bill of lading to this organization under an express condition contained in the import license. Before the Alliance would release the goods to the importer, it secured from him ah agreement to sell to the Government on the terms just described. This policy of obtaining options on wool imports saved the United States over $33,000,000. The fact that wool importers were required to give this option made it unprofitable for them to buy foreign wool at prices prevailing at the close of the year 1917 ; consequently the foreign growers were forced to lower their prices. From December 15, 1917,"when the option agreement was put into force, until March 1, 1918, the average price of imported wool of the grades the United States Government was buying fell from about 66 cents to somewhat less than 68 cents a pound, a drop of about 8^ cents. Purchases made after December 15, 1917, did not begin to arrive m this country m quantity until February. 1918. From February 1, 1918, until Decem- ber 31, 1918, there were 405,624,700 pounds of wool imported into the United States. Assuming that 8^ cents per pound was saved, the total amount saved by this policy was $33,464,038. Similar options giving the Government the right to purchase goods at a given price were required from those desiring to import castor oil, castor beans, hides and skins, leather, tanned skins and manu- factures of leather, platinum, iridium and palladium, quebracho extract, silk noils, silk noil yarns, garnetted stock and silk waste. The agreement which importers of crude rubber and its substitutes were required to sign is interesting in that it combines the option and the guaranty. This is another case in which the administration of the Board's regulations was carried out with the assistance of a 106 REPORT OF THE WAR TRADE BOARD. trade organization. Importers of these materials were obliged to indorse their bills of lading to the Rubber Association of America. Then, by the instructions of the War Trade Board, this association was not to indorse these bills of lading or to accept any transfers or release any shipment until the applicant for the release signed an option and a guaranty in substantially the following form : Option. That the biiitecl St;ites Government shall have, and it is hereby granted, an option to purchase at the prices and on the terms hereafter set forth, all or any part of the (name of material) now or hereafter owned or controlled by the undersigned until sold and delivered to a manufacturer. The -rest of the option was deroted to the prices of the various grades of the given material. Gu(n-anty. That the undersigned will not sell, transfer, or deliver the (name of material) covered by the foregoing option, or any part thereof, to or for the bcnollt of any person, at a price greater than the prices set forth in the foregoing option. An exception was made in the case of contracts made prior to the announcement of these requirements. Another interesting case of price control was coffee. On May 23, 1918, the War Trade Board passed a resolution that no licenses should be granted for the importation of coffee if carried at a freight rate greater than that established by the United States Shipping Board. The purpose of this ruling was to aid in the enforcement of the rates which had been established on November 21, 1917, by the chartering committee of the ShipiDing Board. It appeared that these rates were being disregarded. In fact, at the time this ruling was passed coffee en route to the United States was being transported at rates which caused the total freight charges to be hundreds of thousands of dol- lars in excess of the lawful amount. This profiteering in freight rates on coffee caused an unstable condition in the coffee market and a wide variation in the cost of coffee to different buyers, according to the amount of freight paid. The increase in freight rates was of course reflected in the price of coffee. In accordance with the above resolution, all outstanding licenses for the importation of coffee were suspended until the importers presented a sworn statement to the effect that the rate of freight paid for the transportation of the coffee was not in excess of the rate established by the Shipping Board. In this way the rates of the Shipping Board were enforced and the profiteering with the resulting higher prices was eliminated. Thus thousands of dollars were saved to consumers of coffee in the United States. Centralized huying. — Still another method of price control was afforded by centralizing the buying of a commodity in the hands of some agency of the Government. The best example of this method is wool. After July 28, 1918, no wool could be imported into the United States from Argentina or Uruguay except by the Quarter- master General of the United States Army or his nominees. At first the Quartermaster General did his buying in these countries through EKPOET OV THE WAR TRADE BOARD. 107 a syndicate Orders were placed with this syndicate in such a way that no two firms competed for the same kind of wool. This method was in operation from July 22 until October 26, 1918. The system -was then changed so that one individual did all the buying. With the signing of the armistice the need of the Goyernment for further sup- plies of wool ceased, and on November 13 a cable was sent to this wool buyer to cease buymg. During this period of centralized buying Great Britain made no purchases of wool in these countries. Indi- vidual American importers were not competing with each other The average price for the grades of wool purchased by the United States dropped to 55 cents from about 57f cents a pound. During this pe- riod the United States purchased in these countries 44,433 bales As- suming 950 pounds to a bale, this amounted to 42,211,350 pounds If no consideration is given to the fact that prices would probably have risen, the saving resulting from this plan of central buyino- amounts to $1,160,812. It should, moreover, be noted that within a period of three and a half months the United States purchased all the wool m the South American market without causing a sharp rise m the prices such as certainly would have occurred had as much wool been bought in as short a period of time under conditions of com- petitive buying. Thus the saving on wool to the Government through the wool option ^ and this plan of central buying was at least $35,000,000. ^ Imposing an embargo mi the Im.partati.on of commodities.— 1\\ the fall of 1918 the price situation as regards burlap and burlap bags be- came so serious in this country that the War Industries Board and Food Administration felt it necessary (hat some action be taken Tvith a view of lowering their price. These materials were greatly needed by the United States, not only for use as trench bags, but as packing material. Their use reduced the amount of wooden cases for packing purposes and also reduced the amount of cargo space occupied by goods shipped overseas. The rise in the price of bags caused shipments to be made in bulk. In the case of* goods like potatoes, this caused much more bruising; in the case of wheat, more leakage and damage was the result. There was no necessity for such prices to be charged. The British ' Government controlled prices in Calcutta so far as its own purchases and those of its own civilians were concerned, but refused to interfere further with the course of trade. The Calcutta merchants took ad- vantage of this situation to speculate in burlaps. The result was that prices to non-British consumers ranged as high as three times the prices paid by British consumers, the latter prices affording at least a 20 per cent profit for the burlap mills in Calcutta. Ap- proximately $35,000,000 was paid by American purchasers in excess of the amounts which such materials would have cost at the Gov- • ernment price established in England. The greater part of this excess went to the speculators, who, by purchasing futures, secured control of a sufficient quantity of the supply to be able to dictate the price. Therefore, on October 4, 1918, the War Trade Board, upon the recommendation of the War Industries Board, passed a resolution ' See pp. 105, 106. 108 REPORT OF THE WAR TRADE BOARD. whereby, until further notice, no licenses were to be granted for the importation of burlap, burlap bags, or jute without the approval of the War Industries Board and the Food Administration. Inas- much as their approval was withheld as long as the price of these materials remained exorbitant, this was for practical purposes an embargo. The desired result was acconiplished, as the ordinary de- mand for burlap from Calcutta largely ceased, and consequently the base price at Calcutta dropped from about 16.17 cents a pound on October 2 to about 9.79 cents a pound on December 28, 1918. IV. OBTAINING TONNAGE FOR OUR MILITARY NEEDS. THE OCEAN TRANSPORTATION PROBLEM. The most pressing problem which the United States faced when It entered the European war was the transportation overseas of its military forces and the munitions and other supplies necessary to maintain them. The American merchant marine was small and the 13ritish merchant marine was already hard pressed to meet the needs of the British Empire. The Central Powers counted implicitly on these conditions when they determined to push their submarine warfare to the limit and risk the entrance of the United States into u^ Ti' 1 '^^^ surprise the United States was able to overcome , qL nnn^ ■^' ^^^^ between January 1, 1918, and the end of November 1,862,000 troops were transported overseas by this country. In addi- tion, during the calendar year 1918 the Army shipped 5,842,000 short tons of cargo. The two principal American agencies through which the shipping problem was solved were the United States Shiping Board, includino- the Emergency Fleet Corporation, and the War Trade Board. The latter obtained tonnage for the Army in four different ways: (1) By negotiation; (2) by bunker control; (3) by import control; (4) bv export control. TONNAGE BY NEGOTIATION. From the beginning of its existence the War Trade Board carried on negotiations with various countries which resulted in the direct acquisition of vessels. Tonnage agreements were consummated with Norway, Sweden, Denmark, and Japan. Negotiations were also entered into with Holland and for a long time it was hoped that an agreement would be i-eached, but finally it proved neces-iiry to take over the Dutch shipping which was at the time within the jurisdiction of the United States, giving the owners due compensation for the use of the vessels and safeguarding them against any losses. Dutch Tonnage. Inasmuch as the negotiations with Holland in regard to the ac- quisition of Dutch tonnage were among the first which the War Trade Board undertook, they are considered first. The Dutch ship- ping problem was a difficult one. It was closely connected with the problem of keeping essential supplies out of Germany. As early as July, 1917, the Exports Council was corresponding with the Dutch Government in regard to the actual needs of Holland. In a memorandum prepai-ed by the Council it was jjointed out that the United States could not be expected to export food supplies to neu- trals beyond the minimum amount which was required by the neu- trals after they had made every effort to increase their own produc- 109 110 REPORT OF THE WAR TRADE BOARD. tion to the maximum and to reduce their consumption to the minimum. It was also pointed out that the United States must guard itself against supplying the border neutrals with commodities, which, though not reexported to Germany, would permit the neutrals to part with some of their own domestic supplies. It would be still more to the detriment of the Allies if the United States shipped to the border neutrals feeding stuffs whicli would be reexported to Germany in the form of protein fat values produced by their use. The Ex- ports Council therefore requested that the Dutch Government furnish information regarding stocks on hand or in transit, or which were- owned by the Dutch, but located in the United States, and also a state- ment of all commodities which they desired to import from the United States. Until this information was forthcoming the embargo upon the exportation of goods proclaimed in July, 1917, would be main- tained. Week followed week and yet the Dutch Government failed to de- liver this information. Meantime about 450,000 tons of Dutch ship- ping lay in ports of the United States, on account of lack of agree- ment as to the conditions under which they would receive supplies- from the United States. Communications continued to pass between the two Governments in the attempt to put this idle tonnage into service. The War Trade Board continued the policy of refusing- bunker licenses for the Dutch ships until an agreement should be reached. In December representatives of the Board, of the Allies, and of the Netherlands, met in London for the purpose of concluding a general agreement. The questions of allowing fertilizers to be im- ported into Holland, of Holland's exports to Germany, of Dutch ship- ping to be used for Belgian relief and for carrying goods to Cette, France, for Switzerland, and the question of placing part of the- Dutch merchant marine at the disposal of the associated nations and of using such tonnage in the war zone arose during the course of the negotiations. Early in January, 1918, negotiations were successfully concluded and the Dutch delegates desired to refer the results to their Government. The acceptance of the agreement, including terms re- garding the employment of Dutch tonnage, rested with the various- Governments. In order, however, that Dutch tonnage might not longer remain idle, it was suggested that pending the acceptance of the general agreement a provisional shipping agreement (modus vi- vendi) be made. This was finally accomplished on January 25, 1918.. Tile succeeding events, whose sequel was the requisitioning on March. -2(1. 1918, 'of all Dutch ships in Ignited States waters" are .succinctly described in the statement issued by the President in conjuncticn with his proclamation wlrich authorized the requisition. The President's statement is here printed in f\ill : '- For some months the United States and the entente allies have been conducting negotiations with the Dutch Government with the object of concluding a general commercial agreement. ''A yevy clear statement of the character of these negotiations was- made on March 12 to the Dutch Parliament by his excellency the- minister of foreign affairs of Holland. As appears from the state- ment, the discussion ])rocceded upon the basis of tM'o fundamental ]n'opositions, namely, that the Ignited States and the Allies should, facilitate the importation into Holland of foodstuffs and other com- REPORT OF THE WAR TRADE BOARD. Ill modities required to maintain her economic life, and that HoUand- shoiild restore her merchant marine to a normal condition of ac- tivity." TASK or THE NEGOTIATORS. " It^^as the task of the negotiators to develop a specific applica- tion of these propositions which would be acceptable to the Govern- ments concerned. "Early in January, 1918, the negotiators came to an understanding which was embodied in a tentative agreement which was submitted to the Governments concerned in order that if acceptable it mio-ht be ratified, or if unacceptable a counterproposal might be made. " " The negotiations becoming prolonged, the Dutch delegates pro- posed, m order that their ships might sooner be put into remunera- tive service, that Dutch tonnage lying idle in American waters .should, with certain exceptions, be immediately chartered to the United States for periods not exceeding 90 days." ACCEPTED BY U^'ITED STATES. " This proposal was accepted by the United States Government, and on January 25, 1918, the Dutch minister at Washington handed to the Secretary of State of the Ignited States a note expressing tlie terms of the temporary chartering agreement and his Govern*^ ment's acceptance thereof. This agreement provided, among other things, that 150,000 tons of Dutch shipping .should, at the discretion of the United States, be employed partly in the service of Belgian relief and partly for Switzerland on safe conduct to Cette, France, and that for each ship sent to Holland in the service of Belgian relief a corresponding vessel should leave Holland for the United States. Two Dutch ships in the United States ports with cargoes of food- stuffs were to proceed to Holland, similar tonnage being sent in ex- change from Holland to the United States for charter as in the case of other Dutch ships lying in the United States ports." AGREEMENT EXPLICITLY TEMPORARY. " The agreement was explicitly temporary in character and. being designed to meet an immediate situation, prompt perfoi-mance was of the essence. The Dutch Government at once disclosed, however. that it was unwilling or unable to carry out this chartering agree- ' ment which it had itself proposed. The first desire of the United States was to secure at once shipping, as contemplated b}^ the agree- ment, to transport to Switzerland foodstuffs much needed by the State. One difficulty after another was, however, raised to postpone the chartering of Dutch ships for Swiss relief, and. although the reason was never formally expressed, it was generally known that the Dutch shipowners feared lest their- ships should be destroyed by German submarines, even though on an errand of mercy, and though not traver.sing any of the so-called ' danger zones ' proclaimed bv the German Government. That this fear was not wholly unjustified has. unhappily, been shown by the recent act of the German Government in sinking the Spanish ship tSardinero outside the ' danger zone ' 112 EEPOET OF THE WAR TRADE BOARD. .when carrying a cargo of grain for Switzerland, and after the sub- marine commander had ascertained this fact by an inspection of the ship's papers." GEEMAIs PEESSTJEE ADMITTED. ■' In respect of Belgian relief, the Dutch Government expressed its present inability to comply with the agreement on the ground that the German (jovernment had given Holland to understand that it would forcibly prevent the departure from Holland of the corre- sponding ships, which under the agreement were to leave coincidently for the LFnited States. The Dutch Government even felt itself unable to secure the two cargoes of foodstuifs which under the agreement it was permitted to secure, since here again the German Government intervened and threatened to destroy the equivalent Dutch tonnage which under the agreement was to leave Holland for the United States. " A^early two months have elapsed since the making of the tem- porary chartering agreement, and the proposed general agreement has lain even longer without reply on the part of Holland. Mean- while, Geiman threats have grown more violent, with a view to preventing an_y permanent agreement and of forcing Holland to violate any temporary agreement." FINAL PEOPOSAL TO HOLLAND. " On March 7, through Great Britain, a final proposal, expiring on the 18th, was submitted to Holland. A reply has been received which, while in itself unacceptable, might under other conditions haAe served as a basis for further negotiations. But the events to which I ha\e alluded had served to demonstrate conclusively that we have been attempting to negotiate where the essential basis for an agreement, namely, the meeting (jf free wills, is absent. Even were an agreement concluded, there is lacking that power of in- dependent action which alone can assure performance. I say this not in criticism of the Dutch Government. I profoundly sympathize with the difficulty of her position under the menace of a military power which has in every way demonstrated its disdain of neutral rights. But, since coercion does in fact exist, no alternative is left to us but to accomplish, through the exercise of our indisputable rights . as a sovereign, that which is so reasonable that in other circum- stances we could be confident of accomplishing it by agreement." STEPS TO UTILIZE SHIPS. " Steps are accordingly being taken to put into our service Dutch shipping lying within our territorial jurisdiction. This action on our part and the similar action which is being taken by Governments associated with us leaves to Holland ample tonnage for her domestic and colonial needs. We have informed the Dutch Government that her colonial trade will be facilitated and that she may at once send ships from Holland to secure the bread cereals which her people re- quire. These ships will be freely bunkered and will be immune from EKPOET OF THE WAR TEADE BOARD. 113 detention on our part. The liner Xcw Amsterdam^ which ciime iwithin our jurisdiction under an agreement for her return, will, of course, be permitted at once to return to Holland. Not only so, but she will be authorized to carry back with her the two cargo;'s of food- stuffs which Holland would have secured under the temporary chartering agreement had not Germany prevented. Ample com- pensation will be paid to the Dutch owners of the ships which will be put into our service, and suitable provision will be made to meet the possibility of ships being lost through enemy action."' DESIRE TO SAFEGUAED HOLLAND. " It is our earnest desire to safeguard to the fullest extent the inter- ests of Holland and of her nationals. By exercising in this crisis our admitted right to control all property within our territory, we do no wrong to Holland. The manner in which we proposed to exercise this right and our proposals made to Holland concurrently there- with can not, I believe, fail to evidence to Holland the sincerity of our friendship toward her. " WooDEOw Wilson." The United States secured thus 87 ships of 354,478 tons. Swedish Tonnage. At the same time that negotiations with regard to tonnage were taking place with Holland, similar negotiations were entered into with Sweden. The Exports Council, at the time that it requested Holland to furnish information regarding stocks on hand or in transit, or which were owned by the Dutch, but located in the United States, of goods which they desired to import from the United States, made a similar request of Sweden. The same problem of furnishing the country with essential supplies without aiding the enemy arose with Sweden. Delegates from Sweden met in London with repre- sentatives of the War Trade Board and of the Allied Governments in the month of December, 1917. The agreement resulting from these negotiations was not signed until May 29, 1918. Meanwhile, however, a modus vivendi agreed upon January 29, 1918, was in effect. Swedish modus vivendi. — This working agreement contained not only provisions relating to commodities which the Associated Govern- ments agreed to permit Sweden to import, but also a provisional ton- nage arrangement. Pending the conclusion of a final settlement the Swedish Government agreed : (1) To permit all Swedish shipowners to charter their ships to the Commission for Relief in Belgium without im- posing any conditions. (2) To grant licenses for all Swedish ships then idle in Allied European ports to be chartered for employment in the war zone for a period of three months. (3) To grant licenses for all Swedish ships idle in North and South American ports for employment in Allied interests outside European waters for a period of four months. If the Swedish Government desired to utilize any of these vessels to transport the commodities which the 103584—20 9 114 REPOET OF THE WAE TRADE BOARD. modus vivencli provided Sweden might import, it was to be permitted to do so on condition that an equivalent amount of Swedish tonnage then in iSweden be dispatched simultaneously to the United States. (4) To grant licenses for Swedish vessels then lying in Swedish ports to resume trading voyages pending the conclusion of a general agreement and to put no obstacles in the way of direct negotiations between the Allies and Swedish shipowners; provided in each case {a) that the Swedish Government was satisfied that the vessel was not actually required for the service of Sweden; and (h) that before the license was granted the Associated Governments should give a formal assurance that every facility, in- cluding a sufficient supply of bunker coal, be granted at a port outside the danger zone to permit the vessel to return to Sweden in ballast, if so desired, whenever it completed the voyage for which it was chartered; pro- vided also that the Associated Governments should give a formal assurance that no conditions whatever would be exacted in regard to the future employment or movement of the eriven vessel. The provisional tonnage agreement also stipulated the rates for which the Swedish vessels were to be chartered and provided that the minimum amount of Swedish tonnage to be chartered for the service of the Associated Governments in the war zone under the agTeement should be 100,000 tons dead-weight. Of this amount 80,000 tons were to be delivered immediately and 20,000 tons within six weeks of the agreement. It was further stipulated that one-half of all the charters effected under the agreement should be with the United States Shipping Board and one-half with persons nominated by the British Government. Swedish tonnage agreement. — On May 29, 1918, the final agreement was signed by representatives of the British, French, Italian, and Swedish Governments and by a representative of the War Trade Board. One portion of this constituted the tonnage agreement. A brief summary of the provisions involving the United States is given : (1) Two hundred thousand dead-weight tons (bunkers included) of the Swedish merchant marine were to be placed at the service of the Associated Governments on time charter with liberty to trade in the war zone. No sailing vessels nor vessels under 500 tons gross were to be included in this amount. (2) An equal amount of Swedish tonnage other than sailing ves- sels was to be employed in the service of the Associated Governments on time charter, but not within the war zone. All vessels in this group were to be over 2,300 tons dead-weight. (3) One-half of the time charters thus provided for were to be made with nominees of the United States Government and one-half with nominees of the Interallied Chartering Executive in London. This put 200,000 dead-weight tons at the disposal of the United States. (4) Fifty per cent of the ships were to be delivered before June 29, 1918, and all of the vessels before August 29. REPORT OF THE WAR TRADE BOARD. 115 (5) Swedish tonnage to the amount of at least 150,000 dead-weight tons Avas to be emploj^ed in the service of the regular Swedish over- sea lines in accordance with the following plan: JJno 1. — Fi-(^iii SwKlen to Aiistriilia vin United States ceaUnf,' [Kjrt ami l-'anania Canal, antl liaek with wheat Iroui Australia to Sweden, if such cargo be available; otheniise with cargo from. Aimli-aUa to tlie i'lii/ed ,s7o?c.s, and [rom United States to t^ivedcii. Approximate tonnage lor this line, 24,000 tons deacl-weight. Line 2.— From Sweden to South Africa; from Soulh Africa to India with approved cargo; from Indui to United States icitli. aiipnircd vanio; and from United States to Sweden with cargo. Approximate tonnage, 40,000 tons dead- wei,ght. Line 3. — From Sw-eden to Persian Gulf; from rcr>:ian Gulf or India, to the United Slates with approred earao; and from United States to Sweden with cargo. Approximate tonnage, 42.000 tons dead-weiglit. Line Jf. — From Sweden to India; from India back to Sweden with cargo under general agreement; failing this, India to America and titen America to Sweden. Approximate tonna,t;e, 15.000 tons dead-weight. Line 5. — From Sweden to United States and Jlexico and hacl^ to Sineden toith cargo from United States under general iigreemeut. Approximate tonna.ge, 25,000 tons dead-weight. Line 6. — From- Sweden to River Plate and back to Sweden with cargo under general agreement. Approximate tonnage, 20.0(10 tons dead-weight. Line 7. — From Sweden to west toast of South America and back to Sweden with cargo under general agreement. Approximate tonnage, 14,000 tons dead- weight. It will be noted that three of these line.s involving 77,000 dead- weight tons were to touch at ports of the United St;itcs on their return to Sweden, and two more line? >vith a capacitv of 39,000 dead-weight ton.-^ were to return with cargo to the United States iDrovided they were unable to get the cargo required for return directly to Sweden. In this way the United States was able to secure necessary imports without using her own tonnage. This permitted the tonnage thus saved to be u.sed when the needs were greatest. (6) Swedish sailing vessels trading to Sweden from overseas were to load only in United States ports. (7) Cargo space equivalent to at least 50 per cent of all Swedish vessels calling at United States ports on the outward journey was to be made available for the carriage of approved cargo from the United States to the country to which the vessel was destined, pro- vided the space was not required for approved Swedish cargo. Here, again, is seen a diversion of American tonnage to military purposes by securing foreign vessels to carry this country's exports. Norwegian Tonnage. Steam vessels, -fifty-ffty agreemeirt. — No shipping agreement was reached by the United States with Norway until April 20, 1918. However, through what is known as the fifty-fifty agreement con- cluded with Great Britain on January 12, 1918, the United States acquired a considerable amount of Norwegian steam tonnage. To understand this proceeding fully it is necessary to refer to the agree- ment between Great Britain and Norway which was concluded in July, 1917. The negotiations leading up to this compact had gone 116 KEPORT 0¥ THE WAR TRADE BOARD. SO far by the time the United States entered the war that it was im- possible to change the basis of tlie agreement. It provided : (1) That Norway's coal requirements should be satisfied by Great Britain and carried to Norway in British ships. (2) That Great Britain should requisition Norwegian ships at that time engaged in the coal trade and replace them with British ships. (3) That certain Norwegian ships should be definitely set aside — (a) For Noi-wegian coasting trade. (b) For the carriage of Norway's overseas supplies. (i) That on the expiration of their existing engagements all Nor- wegian ships which were at tha.t time engaged in United States trade sliould be chartered to Great Britain as their existing charters to United States citizens lapsed. On November 23, 1917, the British Embassy in Washington and the War Trade Board arrived at a tentative agreement whereby : (1) Ships on time charter to United States citizens and ships operating between the United States and South America on the Caribbean were to be taken on time charter by the United States Shipping Board. (2) Ships on charter to British subjects were to remain at the disposal of the British Government. (3) Ships in the service of France and Italy were to be real- located to such service on the expiration of their current engage- ments if the war situation so required. (4) Any balance over and above the ships retained by Norway for her own requirements were to be allocated to war services as should be agreed between the Interallied Chartering Executive and the United States Shipping Board. For all the above purposes Great Britain and the United States Avere to have an equal voice in all decisions relating to employment of ships, without prejudice to the rights of France and Italy. For this purpose the War Trade Board would appoint a representative to at- tend all meetings of the Interallied Chartering Executive in Lon- don, and the British Government would maintain a representative at Washington to consult with the United States Shipping Board. It was also proposed that in the future all neutral tonnage acquired by either Government as the result of negotiation was to be allocated on a basis of fifty-fifty between the United States Shipping Board and the Interallied Chartering Executive. On January 12, 1918, the British representatives at Washington ratified the first three provisions quoted alDove and stated that this would give the Shipping Board control over vessels under charter on November 23, 1917, to citizens of the United States, and that the European Allies would obtain similar control of vessels in their service at that date. Furthermore, they agreed that the control of the balance of Norwegian tonnage mentioned in the fourth provision should be equally divided between the Interallied Chartering Execu- tive and the United States Shipping Board. ^ xVs a result of these negotiations with Great Britain the United States was given control of 154 Norwegian steamers, .with a gross ton- nage of 390,545 and a dead-weight capacity of approximately 600,000 tons. KEPOET OF THE WAR TRADE BOARD. 117 Japanese Tonnage. Among the articles whose exportation from the United States was placed nnder license control by the President's proclamation of July 9, 1917, were ship plates and structural shapes. The steel conserva- tion prog-ram adopted by the Exports Council and the restrictions placed on the exportation of these commodities on August 2, 1917, stopped the exportation of over 300,000 tons of ship plates and shapes wliich had been purchased by the Japanese. Japanese shipping had prospered greatly as a result of the withdrawal of German and British shipping from the Pacific, and some 270 steel vessels of more than 1,000 tons each, aggregating over 1,000,000 tons in all, Avere in the course of construction or about to be built. To complete this program Japan had to secure ship plates, shapes, and other ship material from the United States. The Japanese Government therefore immediately entered into correspondence with the Government of the United States for the purpose of securing as much as possible of these materials. The War Trade Board (including its predecessors, the Exports Council and the Exports Administrative Board), realizing the needs of the United States for these materials in order to carry out its own shipbuilding program, did not consider that export licenses should be issued for shipbuilding materials unless by so doing the United States could procure ships more rapidly than they could be built here. Ad- miral Capps, of the Emergency Fleet Corporation, stated that for purposes of approximate estimation it might be assumed that for low- speed cargo-carrying vessels of from five to ten thousand tons dead- weight capacity, 5,000 tons of steel plates and shapes should produce 15,000 tons of cargo dead- weight capacity. The proposition was made to the Japanese that they should furnish the United States with vessels in exchange for shipbuilding materials. These negotiations were con- tinued with the Japanese Government until December. The Japan- ese Government then turned the problem ovei- to certain Japanese shipbuilding companies. These firms had jjurchased approximately 300,000 tons of ship plates and structural shajDes, and they desired to secure export licenses for these supijlies. Steamers chartered. — Before these negotiations with the JajDanese shipbuilders resulted in action, the Government of the United States approached the Japanese Government with a projDosition to charter as much Japanese tonnage as possible. The result of this proposal was an offer by the JajDanese Government to charter to the United States steamers of 150,000 dead-weight tons for a period of six months. On March 3, 1918, the United States Government accepted the Japa- nese offer and as a result acquired 23 steam vessels, with a dead-weight capacity of 151,478 tons. The United States was free to use these ves- sels wherever it chos^. The actual contracts were signed on April 26,1918. Shiphuilders^ agreement. — Meantime the negotiations with the Japanese shipbuilding firms continued until, on ^farch 2(i, 1918, an agreement Avas reached whereby the Japanese shipbuilders agreed to sell to the United States 12 ships whose dead weight totaled ap- proximately 100,000 tons. The United States agreed, for each dead- weight ton of ships delivered, to license the exportation of 1 ton of 118 REPORT OP THE WAR TRADE BOARD. steel for which contracts had previously been made. The deliveries of the ships were to occur between May and September. Ou April 12 the United States Government accepted the offer of three more ships of 9,000 tons each on the same basis of 1 dead- weight ton for 1 ton of steel previously purchased. One of these vessels was to be dehvered in November and two in December. During the months of March and May contracts were entered into with the Japanese shipbuilders for the construction of 30 vessels of a total of 245,850 dead-weight tons. These vessels were to be delivered during the first six months" of 1919. The shipbuilders were to receive licenses to export 1 ton of steel newly contracted for in exchange for every 2 dead-weight tons of ships. The total results of these Japanese negotiations may be sum- marized as follows: Vessels. Dead- weight torip. IS 30 1 SI, 478 128,743 24.5, 8S0 Total.... . . . 58 526,071 Danish. Tonnage. Negotiations relating to the exportation of commodities to Den- mark and the jolacing of Danish tonnage at the disposal of the United States were carried on from the middle of 1917 until Septem- ber 18, 1918, before a final agreement was concluded. Denmark, how- ever, was employing a large amount of her merchant marine in the service of the Associated Governments, and the possibility that the War Trade Board could acquire any considerable block of additional tonnage from this source was small. By the terms of this agreement, entered into by the War Trade Board and the Danish Special Shipping Committee, the latter agreed to charter to the United States Shipping Board •2(i~>,000 dead-weight tons and to Great Britain 200,000 dead- weight tons, all of these steamers and motor vessels to be over 500 dead-weight tons. Of the American allotment about 80,000 tons were to be chartered to the Bel- gian Eelief Commission or to the Swiss Government. About half of the remainder might be used within the German submarine danger zone as existing January 16, 1918, and the rest were to be used outside these danger zones. The vessels were to be chartered for six- month periods, the Danish Special Shipping Committee agreeing that the charters would be renewed on the same coiKlitions until terms of peace were signed hj the United States. Summary. The following table, compiled from figures furnished by the United States Shipping Board, shows the steam tonnage actually acquired by the United States prior to December 1, 1918, through the negotia- tions which were conducted, or participated in by the War Trade REPORT OF THE WAR TRADE BOARD. 119 Board. The figures for December 1, 1918, have been selected as best indicating the amount of this tonnage which had been acquired during the period of hostilities. The table shows the amount of this tonnage in the service of the Army or Navy on this date. Flag. Secured through agreomeuts. NumTior vessels. Bead- wcisht tons. Gross tons. In the service of the Army or Navy. Number vessels. Dead- wcluht tons. Gross tons. Danish (war zonel Danish (nonwar zone) Dutch Japanese Norwegian In service ol the United States Swedish (war zone) Swedish (nonwar zone). Total 17 19 87 23 114 .■il 23 86.49Si S9.6fi(i .'523, 013 1.51,001 467, 269 101, 2?3 101,036 .■52, 646 .13,479 3.54. 47S 100,909 300, 540 60. 4S0 62,377 4,717 2, 529 387,550 129, 181 71,4,54 7,5,238 3,600 264,943 86, 44S 42,625 52,137 3,072 1,619,766 993, 909 671,740 451,754 It should be noted that these figures do not include the 13 Japanese vessels which were built and delivered prior to December 1, 1918. TJie table shows that 334 steam vessels totaling over 1,500,000 dead- weight tons were brought into the service of the United States through negotiation. Sixteen of these, amounting to 70,683 dead- weight tons, were sunk. This left 318 vessels, a total of 1,449,083 dead-weight tons. The table shows that on December 1, 1918, the Army and Navy were using 127 of these vessels of over 670,000 dead- weight tons. This was over 46 per cent of the steam tonnage which had been, acquired through negotiation. The remainder aided the Army indirectly by releasing for its use American tonnage which otherwise would have been required in the import trade. CONSEEVATION OP TONNAGE BY BUNKER CONTROL. British Use of Bunker Control. One of the most effective methods used to conserve tonnage was the control exercised over bunker supplies,' chief among which was fuel. Vessels depending upon any source of power excepting the wind were forced to secure coal or fuel oil to continue on their voyages. The nations which possessed these supplies had the power of dictating the terms under which they would part with them. England's control over neutral vessels prior to July, 1917, was ex- ercised mainly in this way. England was handicapped in this policy, however, by the fact that the United States was an important source of these supplies. The United States furnished to vessels engaged in foreign trade 7,470,988 long tons of bunker coal in 1915 and 7,825,731 long tons in 1916. LikeAvise the United States supplied 3,565,805 barrels of bunker oil in 1915, and 5,529,787 barrels in 1916. With our entrance into the war on the side of the Allies it be- came possible so to extend this control as practically to dominate the shipping of the world. Outside of the ]3ritish Empire and the United States the sources of bunker fuel open to the shipping world were practically nonexistent. 120 BEPORT OF THE WAK TRADE BOARD. Previous to the declaration of war by tlae United States the British policy of bunker control had been developed to accomplish several objects: (1) To aid in the enforcement of the allied blockade. As one of the conditions of obtaining bunker fuel, neutral vessels were re- quired when proceeding to Europe to call at a British port for examination. In this way it was possible for the British to assure themselves that goods were not being shipped to the enemy. (2) To prevent coal, oil, and other supplies from being conveyed to enemy submarines or commerce raiders. This was done by confining the shipment of such supplies to approved consignees. (3) To prevent the transportation of enemy reservists. (4) To conserve tonnage (a) -by preventing the uneconomical use of shipping in long trips in ballast and (&) by the requirement, as a condition of receiving bunker fuel, that the neutral, ships perfonn a certain amount of service beneficial to the Allies, such as the carrying of coal from the ITnited Kingdom to various islands in the Atlantic Ocean. x\s the war advanced and German submarines made heavy inroads on the world's shipping, the last of these objects of bunker control became the most important one. The British were working on this problem at the time that the United States entered the war, and oru- entry afforded the possibility of eliminating to a great extent the opportunity of evasion which had previously existed. The United States followed the example of Great Britain in con- trolling commerce through the licensing of bunkers, and although all of the objects mentioned above were borne in mind, nevertheless the most important I'csult of the exercise of control over bunkers by the T'liited States was conservation of tonnage. The ITnited States and the I'ritish Empire together, through their monopoly of bunker fuel, were able in a large measure to turn the tonnage of the world into those channels where it would be most useful to the Associated Gov- ernments and would permit them to withdi-aw their own tonnage from the various trade regions and put it into the service of trans- porting troops, munitions, and war supplies of all kinds to Europe. Methods by Which the War Trade Board Acquired ol- Conserved Tonnage Throug-h Bunker Control. Satllrig vessels. — One of the first restrictions bringing about a conser^-ation of tonnage through bunker control was the refusal to grant a bunker license to sailing vessels for a trip which would take them into the submarine zone. The danger of loss of tonnage thi'ough submarines was much greater in the case of sailing vessels than in that of steam vessels. Consequently this measure was taken to force the sailing vessels into the safe zones and thereby release to some degree steam vessels for service in the war zone. tSmall steeirii vessels. — On February 27, 1918, the War Trade Board passed a resolution that no American steamers of 2„')00 tons dead- weight or less- should be permitted to engage in trans- Atlantic or other long voyage trades. This was done'in order to conserve ton- nage. On a long trip relatively large proportion of the cargo capacity of sucli vessels is taken up with Iranker fuel. It was possible to save tonnage l)y transferring these vessels to coastwise trade and trade REPORT OF THE WAR TRADE BOARD. 121 with the West Indies and thus to permit the larger vessels engaged in this trade to be used in overseas service. The amount of fuel needed for these short trijos would be much less and the small \'essels could be loaded with much more cargo than if they were allowed to make long voyages. This policy permitted a further saving in ton- nage because the smaller steam A'essels were more subject to destruc- tion by submarines than the large ones. Finally, the withdrawal of the smaller and slower vessels from trans- Atlantic voj^ages enabled the convoy's to proceed at much greater speed. Vessels to he laden to fullest caj)acity. — A third method of conserv- ing tonnage by means of the control over bunkers was the policy of withholding bunker licenses unless the vessels Avere laden to their fullest capacity, or unless some valid reasons were given for sailing without a full cargo. Discouragement of long lianls. — All applications for bunker licenses contained statements showing the complete voyage contem- plated and the nature of the cargo to be shipped on the outward trip, as well as that contemplated for the return trip. If the War Trade Board considered that too long a haul was planned, the license was not granted and thus tonnage was conseived. As early as December, 1917, the applications for bunker licenses of certain vessels desiring to make a voyage to South Africa were refused, and as a result the Shipping Control Committee obtained them for service in the South American and West Indian trade. Attem.'pt to heep vessels actively employ etl. — A regulation which all applicants for bunker licenses were bound to observe was that no vessel should be laid up in port except for necessary repairs without the approval of the War Trade Board or the Interallied Chartering Executive. Quality of hunker coal.— On April 1, 1918, the Fuel Administra- tion issued a circular to the effect that it had prescribed certain varieties of coal to be used for bunkers. The grades selected were chosen with regard to their steam producing and low volatile quali- ties. The use of such coal made for conservation of tonnage in two ■^ays— first, by diminishing the time spent on the trip between ports, and, second, by lessening the probability of loss by submarines. Agents of the War Trade Board and collectors of the customs were instructed to see that the proper bunker fuel was placed upon vessels, especially those contemplating trans-Atlantic voyages. Restriction of the use of coal for stiffening.— Dnvvas: the last week of September, 1918, reports were received by the War Trade Board that there were 7 sailing boats on fire at Norfolk and 13 at South American ports. An investigation showed that, the fires were caused by spontaneous combustion. It appeared that these vessels had used coal for stiffening purposes or ballast and had later loaded a cargo of coal on top of that which had been used for stiffening. This practice of mixing two grades of coal is very dangerous, especially if the coal used for stiffening is damp. As time elapses the coal becomes heated and spontaneous combustion is very likely to occur. Because of the danger of losing tonnage through fire, instructions were sent on October 5, 1918, to the agents of the Boarcl and the cob lectors of customs at Baltimore, Boston, New York, Norfolk, and Philadelphia to notifv all representatives of sailing vessels at their 122 REPORT OF THE WAR TRADE BOARD. ports that as a condition of receiving a bunlc er license sailing vessels should refrain from taking on board coal for stiffening purposes. The wisdom of this policy is indicated by the fact that from the time of its adoption until the close of 1918 no cases of coal or cargo afire were reported. On January 16, 1919, the regulation was niodified to permit the use of coal for stiffening by sailing vessels, subject to the provision that when the vessels should call at any of the ports men- tioned above to complete loading coal cargoes they must furnish a marine surveyor's certificate to the effect that the stiffening showed no signs of heating. Discharge of surplus hunker fuel and ships'' stores. — Late in Oc- tober, 1918, the War Trade Board decided' to modify its ruling in regard to the discharge of bunker fuel and ships' stores at foreign ports. To conserve essential commodities the rule had been that no vessel should discharge such commodities at foreign ports. They were supposed to take only such supplies as they needed for their own use. However, at this time it seemed advisable to permit the discharge of these supplies in case a vessel found it had more than it needed. This privilege had to be carefully watched to prevent its abuse. In practice it was not granted to vessels at ports in Den- mark, Iceland, and the Faroe Islands, Holland, Norway, Spain, or Sweden. The purpose of thus relaxing a former prohibition was to release the greatest possible amount of cargo space, especially on sail- ing vessels returning from South America. Control over return trip. — In many instances the appliciint for a license for bunker fuel and ship's stores was required to agree that the vessel would return directly to the United States or its posses- sions after it had made its outward trip and that it would discharge the entire return cargo in the United States or its possessions. Sometimes the agreement was still sti-onger, requiring that the vessel return via such route and via such ports and with such cargo as the War Trade Board might designate. The guaranty to return directly and to discharge the return cargo in ports under the jurisdiction of the United States enabled the United States to insure the employment of these vessels in our trade. They could not remain in their home ports or engage in a trade in which this country was not receiving the benefit of the cargo space. The import and export restrictions regulated the goods to be carried by these vessels, and where it was desirable, the requirement to bring specified commodities especially needed could be imposed. This was the most effective way of securing and retaining the services of neutral shipping. REGULATION OF IMPORTS. At the beginning of 1918 it became clear that the insistent need for ships in order to carry out the military program would call for a restriction of imports to the bare necessities of the United States. A survey of our import trade was instituted by the Division of Plan- ning and Statistics of the Shipping Board with a view to ascertaining the articles whose importation could be restricted without affecting our war program ; and the results of this survey were submitted to, and passed upon by the War Trade Board. On March 23, 1918, the first REPORT OF THE WAR TRADE BOARD. 123 list of restricted imports ^A'as issued by the War Trade Board, effective April 15, 1918. The items in this list were for the most part goods the importation of which could most obviously be dispensed with. This was followed by a second list published on April 22, 1918, to take effect on May 14, 1918. In general the commodities included in these two lists were such as could be dispensed with to a considerable degree without greatly disturbing the economic life of the country. It was estimated that the tonnage saved in the course of a year by the re- strictions put into effect by List 1 would amount to 50,000 dead-weight tons and that the restrictions of List 2 would cause a saving of 150,000 dead-weight tons. A third list was prepared, containing essential commodities which, after consultation with the industries affected and the governmental departments involved, were limited as to the amount of importations. The items in this list were put into effect by separate and successive regulations of the War Trade Board. These individual restrictions, imposed after List 1 and List 2 became effective, compose the Supple- mentary List of Eestricted Impoi'ts. It was estimated that the sav- ings in tonnage which would result in a year from the restrictions imposed by the supplementary list Avould be from 500,000 to 550,000 dead-weight tons.^ The signing of the armistice prevented the full force of these restrictions from being felt. X number of the restric- tions had not been in operation long enough to show full results expected, but nevertheless it was these restrictions which in the latter months of the war enabled a large tonnage to be transferred from commercial to military use. Methods by which Tonnag-e was Conserved through the Regulation of Imports. There were four methods of using import control to conserve ton- nage : (1) Prescribing the method of conveyance. (2) Shifting the sources from which the imports were shipped. (3) Stimulating imports of materials in their more concentrated forms. (4) Eeduction of the quantity of goods imported. Prescribing the method of conveyance.— Much was accomplished in the conservation of tomiage by stipulating the means of conyeymg certain imports. Licenses would be issued for the importation of certain restricted articles provided they were brought on vessels which could not be utilized for troopships or for carrying supplies to the armies in France or for bringing essential imports. Quebracho wood could be imported only as deck cargo or " on vessels unfit for essential imiDorts." Magnesite was allowed to be imported from the island of Santa Marguerita, situated off the western coast of Mexico, provided it was shipped in small gasoline boats of some 88 tons each. Licenses might be granted for imports of corundum from India and South America for an amount not to exceed m the aggregate 700 tons, provided the corundum was brought " upon sailing vessels not available for other importation purposes." In a ruling of the Board ' For further discussion of these restricted lists, see pp. .311-31.3. 124 EEPOET OF THE WAE TRADE BOARD. passed Maj^ 2i, 1918, limiting the amount of vegetable ivory which could be imported into the United States to 12,000 tons for the remainder of the year, it was provided that licenses might be issued for importations of vegetable i^ory in excess of this amount if it was brought " on ships which the Shipping Control Committee of the United States Shipping Board states to be suitable for no other necessary imports." As an exception to the restrictions placed upon the importation of fruits and vegetables, fresh tomatoes were per- mitted after Sei-itember 3 to come from the Bahamas to New York as deck cargo on the Cuba-NeAv York mail steamers, and after Septem- ber 11 all fruits and vegetables could be shipped into the eastern ports of Florida from the Bahamas provided they wei'e bi'ought " on schooners or motor boats of approximately 100 tons or less register which are owned and operated by residents of the Bahamas.'' It is interesting to note in passing that these relaxations of restrictions in favor of the Bahamas furnish another example of the policy of relaxing, whenever possible, restrictions which placed a serious economic burden upon other peoples. Although many more illustra- tions could be given, one more will be sufficient to demonstrate clearly this policy of conserving tonnage by means of stipulating the method by which the imports were to be shipped. Twelve thousand tons of New Caledonian chi'ome ore, in addition to 10,000 tons which might be imported unconditionally, might come to this country if shipijed between July 12 and December 31, 1918, provided it csime " as ballast for sailing vessels bringing in wool from Australia."" By this method the larger and faster vessels which would be of ser-\-ice for carrying troops and supplies to Europe were released from other trade regions. Shifting the >>ources from lohich the imports mere shipped. — A second method by which the regulation of imports was made to con- serve tonnage was by granting licenses for the importation of certain commodities only from the nearest sources. One of the most inter- esting illustrations of this shifting of sources is the case of chromite. Imports of chromite into the United States in 1917 were 72,063 long tons; in 1918 they amounted to 100,756 long tons. From what sources did this increase of nearljr 30,000 tons come? In 1917 over 59 per cent of the total chromite imports into the United States came from British and Portuguese South Africa. If this same percentage had been maintained in 1918, imports from this region would have been 59,486 long tons. They actuall}- were only 8,521 long tons. The actual decrease in the imports of chromite from South Africa in 1918 as compared with 1917 was a little over 34,000 long tons. However, impoits from French and British Oceania rose from 10,300 long tons in 1917 to 42,800 in 1918. It will be noted that this increase of 32.500 tons did not quite offset the decrease from South Africa. The interesting feature is that by obtaining this chromite from Oceania instead of South Africa tonnage was saved, because the greater part of the cliromite coming from Oceania came as ballast in sailing vessels liringing wool from Australia. As it was necessary to bring the wool, the transporting of chromite as ballast in the vessels laden witli wool involved little additional tonnage. Turning to the countries nearer to the United States — Alaska, Brazil, Canada, Cuba, and (luatemala — the amount imported in 1918 was 49,431 long tons, whereas in 1917 only 19,208 long tons were imported. -i.ijjjrujn± ux xriJi vvAit xkADE BOAED. 125 This increase of over 30,000 tons for these countries near at hand is the answer to the question " From what sources did the increased im- ports of chromite come?" Of tlie 49,431 tons imported from these U.S. IMPORTS OF CHROMITE BY REGIONS. HALFYEAR PERIODS FOR CALENDAR YEARS 1917»= '916 L0NGT0N5 50,00O 40.000 FROM BRITISH AND PORTUGUESE SO. AFRICA FROM BRITISH AND FRENCH OCEANIA FROM ALASKA CANADA CUBA BRAZIL GUATEMALA TOTAL IMPORTS FROM ALL COUNTRIES countries in 1918, nearly 21,000 came from Canada and over 8,800 from (5uba. The ore from Canada was conveyed by rail or lake and that from Cuba involved no vessels of value for overseas service. 126 REPORT OF thp: war trade board. The rulings which brought about this change had provided that chromite would be permitted to enter the United States only under the following conditions : (1) From Cuba, Guatemala, Newfoundland, and Brazil, by sea, not exceeding 43,500 tons between June 15, 1918, and March 31, 1919. (2) From New Caledonia, not exceeding 10,000 tons between June 15 and December 31, 1918. This was later modified to permit an additional 12,000 tons of New Caledonian ore to be shipped between July 12 and Deceinber 31, 1918, as ballast for sailing vessels bringing in wool from Aus- tralia. (3) Shipments coming (a) overland or by lake from Canada: (5) overland from Mexico; (c) as return cargo from European countries, aiid then only wlien shipped from a convenient port and loaded without undue delay. On November 8 it was announced that no licenses would be issued for the importation of chromite except from Brazil, Canada, and Cuba, and all outstanding licenses for shipments of chromite to be made after November 11, 1918, from any source excepting these three countries were revoked. Stimulating imports of materials in their more concentrated forms. — A third method by which shipping space was conserved w;is by permitting the importation of certain materials when in a some- what concentrated form, but prohibiting the entrance of these goods in their more bulky state. One of the best examples of this policy was copper. On May 31, 1918, the War Trade Board passed a resolution that after June 10 no licenses should be issued for the importation of copper ore from any country except Cuba. All licenses for the im- portation of copper ore by shipments to be made after June 10 were re- voked. On July 12 this was modified so as to permit imports from Canada and Mexico as Avell as Cuba. Copper concentrates containing less than 60 per cent of copper (later reduced to 50 per cent) were also embargoed unless imported from these three countries. It will be noted that no restriction was placed upon the importation of copper matte, blister, or refined copper. Copper in these forms takes up less than one-fifth as much cargo space as copper ore. In other ^vords, 5 tons of copper ore of the grades imported into the United States con- tained less than 1 ton of copper ; the balance was waste. The United States was ready to take all the copper that was presented, but was unwilling that valuable shipping space be utilized for the transporta- tion of waste. It was hoped that this policy would cause an increase in the smelting of ore in the countries of origin in considerable quantities, especially Chile. The armistice was signed before time permitted this hope to be realized to any considerable degree. The accompanying graph, however, a cumulative curve showing the total amount for the year up to any given month, brings out clearljj the cessation of imports of copper ore from Chile, whereas imports of copper matte and blister continued to come in. A similar case is that of quebracho wood, from which is obtained tannin for use in the preparation of leather. The entrance of the United States into the war greatly increased the demand for this material, and 21,297 long tons were imported during the first half of -'J- -l-J_i.A:i ¥V ,fXJ.V _L tts.de board. 127 1918._ Important as this material was, it took up so much cargo space that it was placed on List of Restricted Imports No. 2. No licenses for its importation were to be granted for shipments made after May 13, U.S 90,000 75,000 60,000 AS.OOO 30,000 15,000 z z 30 AX JAN. FEBi MAR APR. MAY J>iE J'LY AUS SEP. OCT W/ DEC JAN. FEB MAt APR ^ ^ \ 0-* 64- CO -n -0 -0 m 7i 73 m > -D -0 m 73 2 H rn > z OJ (fl -\ m -n X (— rn 49 Ob ^ St 14- di 3 m I 3fc 23 N ^ ■n 21 83 8 •< 3 3 c 15 27 3 '- V \ \, 26 5S 7 5 X ^ < 2S »5 0'^ N <: 1 s 38 26 3 3 71 c 7> 3 14 S9 1 1 1 ■-> ■5 Ii! «■ . s 23 36 m 3) 63 ^1 1 "0 rn \ 38 77 Jl 86 7^ K. ^ ^ u 37 37 33 41 '\ \ \ k 6 93 74 37 25 3\ \ s \ S7 31 86 ! ' •43 06 c^ \ \ s \ 7 85 62 5 12 79 * •*. ■v ■■>» "v ■^ X ^ fc3 398 89196 Ns^ -:.. ^^- SNw /i7'o6 3 1J> C l4gS"9' i •< ^ '? 2 5-2 07 CO 2 2 16 i 1 9^ ^^ ';r^ s < ^^ 31 ^9 •) z -I < az \ % 33 73 7 s c 3J ^^'t> ^ 3r ^7 4 < m JlY Aua SEP. OCT NOV DEC £ 4442. ! s \ \ ' ^ 71 i3 |3, " '\ ■V V N 4 a* 04 ,3 32 ^•^ I \ \ s s St. 71 i 3 J» ?s 1 i 1 S N s, 6s 43 1 3 38 55 1 1 \ 6g 46 4- 3 38 5fc 1 1 33 85 (■ s \ 7+ zb 6 1918, except when coming as deck cargo or on vessels unfit for essential imports. The result of this restriction was that onljr 1,505 long tons were imported during the second half of 1918. This was a decrease 128 EEPORT OF THE WAR TRADE BOARD. of 20,792 long tons, or 46,574,080 pounds. Allowing that the extract procured from the wood constitutes about 20 per cent of its total volume, this decrease in the quantity of wood imported meant that. " -p -^ "WoPrNJ Jk OS 00 o f3 4^ wCI c l^"^ i ) = J C 3 <: > V r> T JAN v N 5,9 910 00 -n 5 3 y^ V* s ■71 :? r- > 5 FEB \ 1.1'. '3t ) ^0 3: -( ^ 5 ■^ s ■^ -1 3 < MM N ^ S3I 637 »5- t N V APR MM ■'3 3H •1.7 is' ■V s k K5^2 00 « m OB 44 Ilk N 950 sW ^ ^ 65- 34< 600 C/> 1 - 1^0 » j'ne PO 1 r 99,^ t57 fco 55 t^Jy ,"5 -i *-^ -- ■^ ■*«» 114, 113, 920 MIC 1M77 1 01s __ V fc56 5« ^l' \ 5EP t» JI1 421 "1 \ ita ,3. b4o OCT - )».3 S83 B7> ^ ^ S. > z \ 150 t30 080 NOV DEC - — 1 67, ^ m **■- ^-. -« ■•*« DO \ I0& 'i9i077 1 5364t.os» m 7> > \ JAN 4 ayzcoo i^ Lfi - 5 3 I '«, ^ 7> 3 c: > FEB 700.970 ■~; il o:h2' '«> ^ \ ! \ s H X < n WR ^pp-i^ |0 '^f'O /|ii4-V c/> 30 > > \- 37D oib \! V£ J'l 3io <; s-? '^r ^ m NAY 1& 04, ■^It i,> k' •' 17= ^Ki „ > X^. 1 I- JNE 1 N % t. m z 3fy 7^7 I'lS V" V o JLY \ iJ > 71 40 05? aA. 'n WC \ > ^»11 070 »3» -< m ♦ M a 6-1 &o -■ '■•^ SEP 076 ^ftt '•V 7^.' boz £0 > 7) r * ■~ .^ C/l ca Do *■• x^ ro^ 19b |6<^ M> S, ^ VI NOV po 11-^ 6J(- tiS 1 \ SS \ 0> 61,076 4&0 '3'. '09,7 39 disregarding any increased demand for the extract, nearly 10,000,000 pounds more extract had to be imported into the United States dur- ing the last half than during the first half of 1918. As a mat- REPORT OF THE WAR TRADE BOARD. 129 ter of fact the amount of quebracho extract imported during the second half of 1918 was nearly 58,000,000 pounds in excess of the quantity imported during the first half. Tims not only was the loss (>£ the quebracho wood replaced, but the increased demand for tan- ning material was also met by importing it in the concentrated rather than in the bulky form. The graph illustrating this is also a cumu- lative curve. Any point in the curve represents the total amount of imports from January 1 until the time determined by the iaoint se- lected. In 1917 the quantity of quebracho wood considerably ex- ceeded the quantity of extract imported and the same is true in the first few months of 1918. However, the effect of the restriction upon the importation of quebracho wood announced on April 22 and effect- ive May 14 is seen from May until the end of the year. The total amount remained practically constant. On the other hand the imports of the extract continued to increase and at a much greater degree than they did in the first part of the year. By the end of August they had equaled and by the end of the year considerably more than doubled the quantity of quebracho wood imported. Red%i,ctio-n of the qioanfity of goods imported. — The ultimate goal toward which the Shipping Board and the War Trade Board wei'e working at the time the armistice was signed, so far as the restriction of imports was concerned, was to eliminate all imports except the absolute minimum of essential conmioclities. The effect of such a policy can be seen from a study of the reduction in imports, which resulted from the restrictions placed upon the importation of certain specified commodities. By a resolution of the War Trade Board passed May 31, 1918, no licenses for the importation of copper ore except from Cuba were to be issued after June 10, and all outstanding licenses for ship- ments after June 10 were revoked. This resolution was modified on July 12 so that copper ore might be imported from Cuba, Canada, and Mexico. A study of the graph on the following page shows that during the last six months of 1918 the imports of copper ore were less than during the first six months of the year by 51,456 long tons, a decrease of over 30 per cent. It will also be observed that the combined amounts imported from Canada and Mexico during the two periods were practically equal, the decrease in the second half of the year being less than 6,000 long tons. The rest of the decrease, nearly 45,600 pounds, is attributable to a decrease in imports from Cuba and other countries. The shipment of copper ore from Canada and Mexico did not necessarily involve the use of ocean vessels, wliereas its transportation from other countries did. Whatever decrease, there- fore, occurred in imports from countries other than Canada and Mexico may be considered as a conservation of tonnage. The importa- tions from all countries except Canada, Mexico, and Cuba decreased from 38,608 long tons for the first half of 1918 to 12,606 for the second half of the year, over 26,000 long tons. A comparison of the last six months of 1918 with the last six months of 191Y would show still greater reductions, both absolutely and relatively, in the imports neces- sarily involving the use of ocean vessels. Plumbago or graphite was one of the commodities included in List of Restricted Imports No. 1. No imports shipped after April 14, 1918, except by rail from Mexico or Canada or as return cargo 103584—20 10 130 EEPORT OF THE WAK TBADE BOAKD. from Europe, were to be permitted until July 1, 1918. On July 1 the War Trade Board passed a resolution that no licenses for the importation of graphite should be issued during the remainder of the J* U.S. IMPORTS OF COPPER ORE BY COUNTRIES. HALF YEAFl PERIODS FOR CALENDAR YEARS 1917-1* LONG TONS 82.?71 I8>B£ 45,72? 59.39Z 1917- 90.893 PS,B67 33,40fc 65,7^8 171.190 1.000 L.T. L 7.4,480 7,o6z ££;sgt iz.tofc I 10 10 30 40 50 100 150 200 LEGEND CANADA MEXICO CUBA ALL OTHER COUNTRIES D year. On October 1 this was modified so as to permit the importa- tion of amorphous or dust graphite from Mexico or Canada if it origmated in one of those countries and came by rail or by lake. KEPORT OF THE WAR TRADE BOARD. 131 Hake graphite could also be imported provided that the Chemical bection of the War Industries Board approved and certified that the ultimate consumers had been using at least 20 per cent of domestic or U.S. IMPORTS OF GRAPHITE FROf . CANADA, MEXICO, AND ALL OTHER COUNTRIES. BY aUARTERS FOR CALENDAR YEARS I9I7-I5I& 1 -" r! !il >^ < o: o tt- u I- £ o o IZOOi <+ tJ t^ 1 tr> — . fJ. ,'T. s.ooo 6.000 4.000 2,000 (000 — LONC TONi 1917 1918 LEGEND CANADA MEXICO OTHER COUNTRIES Canadian flake graphite in the manufacture of their products. A study of the graph shows 5,500 long tons decrease in imports during the last six months of 1918 as compared with those of the first six 132 REPORT OF THE WAR TRADE BOARD. months, or nearly 50 per cent. However, of the 11,469 long tons imported during the first six months of 1918, the amounts coming from countries other than Canada and Mexico amounted to 7,18S U.S. IMPORTS OF PYRITES FROM CANADA,SPAIN,AND ALL OTHER COUNTRIES. BY FOUR MONTHS PERIODS, FOR CALENDAR YEARS 1917-1916- 547.340 49i.797 LONC T0N5 375.000—-.-- 300.000 225.000 iXOS 150.000 75,000 — CANADA ^ ^ LEGEND SPAIN Mother countries D long tons, whereas in the last six months of the year they amounted to only 2,467 long tons. This was a decrease of over 60 per cent of the graphite coming from overseas. If the last quarter of 1918 REPORT OF THE WAR TRADE BOARD. 133 is compared with the second quarter, the saving of overseas tonnage is still more evident. Imports of graphite into the United States U.S. IMPORTS OF LICORICE ROOT FROM ALL COUNTRIES. BY FOURMONTHS PERIODS FOR CALENDAR YEARS I917-I9I8 from overseas during the months of April, May, and June were 2 593 long tons, whereas in October, November, and December they amounted to only 572 long tons, a decrease of nearly 78 per cent. 134 EEPOKT OF THE WAR TRADE BOARD. Pyrites was also included in List of Restricted Imports No. l._ If originating in Canada or Mexico it could be imported into the United States by rail. It might be imported from Europe as a return cargo ^vhcn it could be loaded without delay and at a convenient port, and in addition 125,000 long tons could" be imported from any source before October 1, 1918. On September 26, 1918, the War Trade Board passed a resolution providing that 56,400 tons, the portion of the 1:^5,000 tons which still remained unimported, might not be licensed for import unless coming from Spain. During the eight months May to December, inclusive, 1918, there Avere 311,312 long tons of pyrites imported into the United States, as compared with 087,746 long tons during the corresponding period in 1917. During this eight months' period in 1917 nearly 481,000 long tons of pyrites were imported from Spain and 2,700 long tons from Portugal. Thus 70 per cent was brought from overseas. If the first four months of 1918 are considered, the portion brought from overseas is greater, over 93 per cent coming from Spain. From May 1 until December 31, 1918, onh' 9r),000 long tons of pyrites were imported into the United States from Spain. This was nearly 78,000 long tons less than the imports fi'om Spain during the first four months of the year and was ovei' 385,000 long tons less than had come from Spain during the last eight months of 1917. Of the total imports of pyrites during the last eight months of 1918 the amount brought from overseas was only 32 per cent, as compared with 70 per cent for the corresponding period in 1917. As the graph on page 132 shows, the United States continued to import pyrites from Canada in 1918 in about the same quantity as in 1917. These imports involved no ocean tonnage. The conservation in tonnage resulted from the reduced imports from overseas. Licorice root was placed on List of Restricted Imports No. 2. No import licenses were to be issued for shipments of licorice root made after May 13, 1918, except for imports coming overland or by lake from Mexico or Canada or as return cargo from Europe if shipped from a convenient port and without delay. In the first four months of 1918 there were imported into the United States nearly 12,000,000 pounds of licorice root. The amount imported during the second four months of the year was about 2,000,000 pounds less, and during the last third of the year the imports were approximately 6,500,000 pounds less than those of the first four months of the year. This was a reduction of about 55 per cent. The imports during the first eight months of 1917 and of 1918 were approximately equal, but the imports during the last four months of 1918 were less than half of those during the corresponding period of j 917. Practically all of this reduction represents a saving of tonnage. (See graph on page 133.) Some other examples of this same method of conserving tonnage are given below. A comparison of the imports during the first half of 1918 and those during the second half of the year is made. Commodity Broom com long tons . . Com bushels . . Currants poimds. . Hay long tons. . Honey gallons. . Imports Imports January- July- June, December, 1918. 1918. 1,835 131 1, 833, 999 156,303 4, 892, 927 198,401 231, 262 168, 474 363, 685 41, 998 Commodity. Hops pounds Oats bushels Onions do... Sal ammoniac pounds Whalebone do. . . Imports January- June,' 1918. 76, 769 1,319,179 261,039 283, 909 800 Imports July- December, 1918. 124,621 9,990 995 None. REPORT OF THE AVAR TRADE BOARD. 135 One more example will further illustrate the conservation of ton- nage resulting from the restriction of imports. Quebracho wood U.S. IMPORTS OFaUEBRACHO WOOD FROM ALL COUNTRIES HALFYEAR PERIODS FOR CALENDAR YEARS I9I7-I9IS LONG TONS 50.000 40,000 30.000 20,000 10.000 shipped after May 13, 1918, could not be imported into this country except " as deck cargo " or unless shipped "on vessels unfit for essen- 136 REPORT OF THE WAR TRADE BOARD. tial imports." The graph clearly shows the effect of this restric- tion. During the first half year of 1918 imports of quebracho wood amounted to some 21,000 long tons, and none of this came m June. Imports for the last half of the year were approximately 1,500 long tons, none of which was brought into the country during the last three months of the year. This reduction of over 19,500 long tons, a decrease of over 92 per cent, affected in its entirety overseas imports, as all of this material comes from South America, and practically all comes from Argentina. EXPORT PRIORITIES. Difficulties of tlie Tonnage Situation. In the early part of the war export control was exercised for two purposes, conservation and blockade. So far as the control of export trade which did not fall within one of these categories, the policy of the War Trade Board had been to license commodities freely for export. At the same time the Board and other war agencies in Washing- ton had been working on the problem of providing tonnage to trans- port our Armjr to France and to keep it supplied with the essentials of maximum military efficiency. One of the chief means of meet- ing the problem was the import program of the Board by which drastic reductions had been made in import trade and shipping had been forced to leave many trades because of its inability to lift com- modities for import into the United States. Lists of restricted im- ports, Nos. 1 and 2, became effective in April and May, 1918. It was certain that apiDlications for export licenses would greatly exceed the amount of cargo space available to carry our export surplus to the various countries of the world, and it was equally certain that the commodities applied for by each country would be based less on its economic needs than on considerations of profit. It was felt, there- fore, that some system of export priorities should be established that would coordinate export and import policy. This matter was before the Board for consideration as early as April and May of 1918, but no satisfactory system of priorities was established until the latter part of the year. Shipping Preference Plan for East Coast of South America. In September attention was directed to the countries on the East Coast of South America, where the deficiency in tonnage had been most acute. The Shipping Board had determined that it would require from 400,000 to 500,000 tons of cargo space to bring necessary im- ports from Brazil, Argentina, Uruguay, and Paraguay during 1919. This figure represented the maximum tonnage available, therefore, for exports to these countries. A preference list of commodities was then established for exports on the following basis: (1) Materials which would assist the importing countries in supplying to the United States or the Allies commodities needed for war purposes. (2^ Commodities essential to the economic life of the country (3) High-value, small-bulk articles useful in readjusting our adverse exchange relations with these countries. (4) All other important customary imports. REPORT OF THE WAR TRADE BOARD. 137 On the basis of this list everj^ commodity entering into our export trade with these countries was given a preference rating 1, 2, 3, or 4, by the Bureau of Exports, and this rating was to be honored in loading ships subject only to the exigencies of prompt loading and satisfactory stowage. This procedure was perfected and announced to the public on the day the armistice was signed, to become effective on November IS, and at the same time preference lists were in prepa- ration for the Caribbean countries and Central America and for the Far East. The cessation of hostilities prevented any of them ever being put into operation. The procedure for the East Coast South American countries was revised early in December with the relaxation in the tonnage situation and a temporary preference rat- ing established based on priority of licenses.^ There is every reason to believe that the ocean shipping pi-eference plan would have worked to advantage in the utilization to the great- est possible extent of the available shipping to satisfj^ the needs of the countries in question and in the greatest possible utilization of their resources in the conduct of the war, had not the signing of the armistice brought an end to further extension of the tonnage program. TABLES AND GRAPHS SHOWING THE WITHDRAWAL OP SHIPPING FROM CENTRAL AMERICA, SOUTH AMERICA, AND THE FAR EAST. As an indication of the conservation of tonnage effected through the control of bunkers, imports, and exports exercised by the War Trade Board the following tables and graplis are presented. They are based on the figures of the Division of Planning and Statistics of the United States Shipping Board showing the tonnage of steam and sailing vessels, both American and foreign controlled, in certain trade areas from September 1, 1918, until January 1, 1919. These tables and graphs bring out clearly these results : (1) The decrease in the total amount of tonnage operating in the given regions from September 1 until December 1, 1918, amounted to 683,832 dead-weight tons. (2) The decrease during these three months m the dead-weight tonnage of steam vessels trading in these regions was 649,705 tons, and the decrease in sailino- vessels was 34,127 tons. (3) There was a: tendencv until the signing of the armistice for foreign-controlled vessels to take the place of the American-con- trolled vessels, as the latter were withdrawn from tliese regions. Thus during the two and a half months from September 1 until No- vember 15, 1918, the dead-weight tonnage of American-controlled vessels fell from 2,665,439 to 2,077.014, a decrease of over 2li per cent. On the other hand, during this same period, the dead-weight tonnage of foreign-controlled vessels in these regions increased from 1,516,888 to 1,748,5-42. or over 15 percent. (See graph, p. 141.) The increase of 231,654 tons in foreign-controlled tonnage trading with the United States between September 1 and NoA-ember 15 was a natu- ral result of the greater rigor of import restrictions, first tor the European Allies and -then for the United States. It is^ significant thaf this increase in tonnage was mainly m the East Indian and British Indian trades. As the war zone became larger and more 'See pp. 190-191. 138 EEPOET or THE WAR TEADE BOARD. hazardous, and Allied restrictions left the United States as the only large open market, foreign-controlled tonnage had sought the lucra- tive and safe trans-Pacific trade to the United States. This drift of free tonnage began early, but did not reacli its maximum until the second half of 1918. Naturally there was no way of forcing f oreign-controlled _ ships into war zone service, and in the main, when the armistice was signed, import restrictions in the Ignited States had not been in operation long enough to make fully effective the lack of essential cargoes for this Pacific tonnage, to such a degree that it would seek other services, either in the war zone or in carrying part of the burden of essential imports from other sources. However, the certain results of the restrictions in effect and ready for adoption when the armistice was signed, would have been to lea-s'e this foreign-controlled tonnage the alternatives of unemi^lojmient or of helping meet the Allied needs in ways directed by the regulation of imports. Thus had hostilities continued into 1919, by the regulation of employment for national- controlled ships and of cargoes for foreign-controlled ships, the entire Allied and neutral tonnage of the world would haye been mobilized for handling the military needs and essential imports of the Allied nations. (4) This tondencj' for the American-controlled vessels to decrease and the foreign-controlled vessels to take their place, applied to both steam and sailing vessels. (5) With the signing of the armistice, the total foreign-controlled vessels operating in these regions began to decrease. This movement is seen first in the case of the steam vessels, as might be expected, owing to the fact that sailing vessels are slower. Nevertheless, the same influence was at work with sailing vessels, as is indicated by the check in the rate of increase, and from December their number also began to decrease. (6) In the case of American-controlled vessels the opposite move- ment is seen. After December 1 the amount of American tonnage in these regions increased. Total AmrtHcan and foreign controUed rcf!sels in va7-ious trade regions, Sept. 1, 191S-Jan. 1, 1919, inclusive. [Dead- weight tons.] Steam vessels: Sjpt. 1.... Oct. 1 Nov. 15... Dec. 1 Jan. 1 Sailing vessels Sept. 1-... Oct. 1 Nov. 15... Doc. 1 Jan. 1 Total: Sspt. 1.... Oct. 1 Nov. 15... Dec. 1 Jan. 1 East Asian, East Indian. Britisli Indian. 773, 747 81, 110 128, 790 736, 026 204, 979 173, 701 728, 866 235, 770 259, 294 691, 8a8 203, 558 292, 595 747, 026 237, 840 214, 446 24, 350 6, .340 2, ,892 19, 660 5, 570 1 , 765 21, 579 4, .549 1, 7li5 22, 069 4, ,549 871 18, 003 4,884 87,450 798, 097 131,592 755, 686 210,549 175,466 750, 445 240, 319 261,059 713,967 205, 107 293, 466 765, 029 242,724 214,446 1 Amazonian, Central Brazilian, and La Plata regions combined. Amazonian Australian, Hawaiian, and Central Brazilian. 166, 433 161,759 1745,518 162, 759 143, 167 157,360 134, 158 179,451 163, 181 132,403 200, 331 146,495 122,077 163,608 158,275 153,598 6,979 1209,163 142, 246 5,899 115, 182 145, 163 5, 137 124,028 152,243 5,387 118,333 145, 004 6,739 99,903 320, 031 168, 738 1954,681 305,005 149, 066 272,542 279,311 184,688 287, 209 284, 6i6 205,718 264,828 267, 681 170, 347 268, 178 RKPORT OF THE AVAR TRADE BOARD. 139 Total Avicrican and foreiyn controlled vcsftels in various trade regions, Sept. J 1018-Jan. 1, 1919, inclusire — Continued. Steam vessels: Sept. 1 Oct.l Nov. 15 Dec. 1 Jan. 1 Sailing vessels: Sept. 1 Oct. 1 Nov. 15 Dec. 1 Jan. 1 Total: Sept. 1 Oct. 1 Nov. 15 Deo. 1 Jan. 1 La Plata. 470, 280 298,923 173, 047 217, 159 81, 619 74, 339 70,fi44 78, 575 551,799 373, 262 243,691 295, 734 AVcstcoast of South America. 758, 847 719,535 774,575 624, 113 577,415 34, 176 35, 859 37, 344 36,340 27, 873 793,023 755, 394 811,919 660,453 605, 288 Caribbean. 265,888 256,971 188, 699 183, 083 272,647 6,089 4,797 3,277 2,202 2,900 271,977 261, 768 191,976 185, 285 276,547 West Indian. 464,468 476,990 402, 887 384,390 443, 767 15, 554 14, 252 14,791 15,568 12,511 480,022 491,242 417, 678 399,958 456, 278 Mexican Gulf.i 173,434 185,414 26, 890 41, 376 40, 986 3,282 767 900 176, 716 186, 181 27,790 41,376 40, 980 3,719,994 3,687,182 3,392,694 3,070,289 3,195,246 462, 333 427,516 432, 862 428,206 396, 992 4, 182, 327 4, 114, 098 3,826,556 3,498,495 3,592,238 I For the months of September and October the ports of the United States on the Gulf are included witli those of Me.Mco. Beginning with Nov, 15 the figures include Mexico's Pacific ports but no United States ports. Americaiiroontrollcd vessels in various trade regions, Sei)t. 1, 1918-Jan. 1, 1919, inclusive. [Dead-weight tons.] Steam vessels; Sept. 1 Oct.l Nov. 15... Dec. 1 Jam. 1 Sailing vessels: Sept. 1.... Oct.l Nov. 15... Dec. 1 Jan. 1 Total: Sent. 1.... Oct.l Nov. 15... Dec. 1 Jan. 1 125,840 135, 991 122, 248 117, 903 194, 954 22,327 17, 132 17, 882 17, 375 13,425 148, 167 153, 123 139, 930 135, 278 207, 379 East Indian. 25, 298 24, 477 9, ,571 10, 700 30, 051 5,231 1,408 1,470 1,470 1,805 30, 529 25,885 11,041 12, 170 31, 856 Fritish Indian. 62, 560 30, 760 46,060 50, 900 48, 000 2,802 65, 362 31, 654 46,954 50, 900 48, 000 Australian 37, 921 39, 121 35, 605 39,405 51, 153 103,741 92, 427 94, 065 104,420 103, 343 141,662 131,548 129, 670 143, 825 154,4% Hawaiian. 161,759 143, 167 170,859 178, 688 154, 958 6,979 5,899 5,137 5,387 6,739 168, 738 149, 066 175, 996 184,075 161, 697 Amazon and Central Brazilian. ' 390, 687 61,990 63, 950 46, 974 1 186,996 97, 618 103, 947 91,254 87, 871 1 577, 683 159,608 157,897 138, 228 177, 559 Steam vessels: Sept. 1 Oct.l Nov. 15 Dec. 1 Jan. 1 Sailing vessels: Sept.l Oct. 1 Nov. 15 Deo. 1 Jan. 1 Total: Sept. 1 Oct. 1 Nov. IS Dec.l Jan. 1 La Plata. 221, 526 111,227 78, S73 127, 262 75, 876 55, 554 63, 282 61, 448 297, 402 166, 781 132, 155 178, 710 "West coast of South America. 670, 238 649, 224 662. 661 623, 784 476, 278 31, 007 34, 076 33, 652 34, 751 26, 699 701, 245 683, 300 696,213 558, 535 602, 977 Caribbean. 235, 118 221, 591 152,619 138,645 213, 122 4,847 4,797 3,277 2, 202 2,900 239, 965 228, 388 155, 896 140, 847 216, 022 V/est Indian. Mexican Gulf.2 419, SI 6 448, r,va 367, ICiS 340, 212 419, 769 15,174 13,872 13,617 14, 394 11,717 434, 990 402, 439 380, 785 354, 606 431,486 154, 116 171,004 15, 851 27, 226 25, 986 2,982 767 157, 098 171,771 15,851 27, 226 25,986 2, 283, 363 2,147,418 1,747,719 1,553,310 1,831,221 382, 086 344, 766 329, 295 324, 636 304,947 2,66.5,439 2, 492, 184 2,077,014 1,877,845 2, 136, 168 ' Amazonian, Central Brazilian, and La Plata regions combined. ' For the months of September and October the ports of the United States on the Gulf are included with those of Mexico, n eginning with Nov. 15 theflguresinclude Mexico's Pacificports, but no United States ports. 140 REPORT OF THE WAR TRADE BOAllU. Foreign-controUcd vessels in rarions trade rryiom, Sept. 1. 1918-Jan. 1, 1919, inclusive. [Dead- weight tons.] Steam vessels: Sept. 1.... Oct. 1 Nov. 15.... Dec. 1 Jan. 1 Sailing vessels: Sept. 1. . . . Oct. 1 Nov. 15.... Dec. 1 Jan. 1 Total: Sept. 1.... Oct. 1 Nov.lo Dec. 1 Jan. 1 Steam vessels: Sept. 1.-.. Oct. 1.... Nov. 15.--. Dec. 1 Jan. 1 Sailing vessel^' Sept. 1...- Oct. 1 Nov. 15 . . Dec. 1 Jan. 1-.-- Total: Sept. 1.... Oct.l..-- Nov. 15... Dec. 1...- Jan. 1 — East Asian. East Indian. 647,907 600,035 606,618 i 573,995 552,072 2,023 2,528 3,897 4,694 5,678 649,930 602,563 610,516 678,689 567,650 56,812 180, 502 226,199 189,8.58 207,789 1,109 4,162 3,079 3,079 3,079 .56,921 184,664 229,278 192,937 210,868 British Indian. 66,230 142,941 213,234 241,695 166,446 871 871 871 Australian. 60,2.30 143,812 214,10.1 242, .566 166,446 128,512 123,638 98,553 92,998 70, 924 49,857 49,819 61,088 47,823 42,261 178,369 173,457 149,641 140, ,821 113,185 Hawaiian , La Plata. 248,754 187,696 94,174 5,643 18,785 17,362 27,127 254,397 206,481 111,. 536 117,024 West Coast of South America. 88,609 70,311 112,014 100,329 101, 137 3,169 1,783 3,692 1,689 1,174 91,778 72,094 115,706 101,918 102,311 Caribbean . :10,770 35,380 36,080 44,438 59,525 1,242 West Indian 32,012 35,380 36,080 44,4.38 59,525 44,652 28,423 35,719 44, 178 23,998 380 380 1,174 1,174 794 45,032 28,803 .36,893 45, 352 24, 792 8,592 21,643 8,650 8,592 21,643 8.650 Mexi' an Gulf.2 19,318 14,410 11,039 14, 160 16,000 300 19,618 14,410 11,939 14, 1.50 15,000 Amazonian and Central Brazilian . 1364,831 95,370 109,231 99,521 68,587 > 22, 167 17,564 20,081 27,079 12,032 I 376,998 112,934 129,312 ■126,600 80,619 Total. 1,436,641 1,539,764 1,644,975 1,616,979 1,364,025 80,247 82,750 103,667 103,671 92,045 1,516,888 1,622,514 1.748,542 1'. 620, 6,50 1,456,070 1 Ama"'.onian, Central Brazilian, and La Plata regions combined. 2 For the months of September and October the ports of the United States on the Gulf are included with those of Mexico. Beginning with Nov. 15 the figures include Mexico's Pacific ports, but no United States ports. REPORT OF THE WAR TRADE BOARD. 141 TOTAL TONNAGE OPERATING INTRADE WITH CEN- TRAL AMERICA.SOUTH AMERICA ANDTHE FAR EAST FROM SEPTEMBER I^II^lSTO JANUARY 151 I919 4,500,000 — 142 REPORT OF THE WAR TRADE BOARD. TOTAL STEAM TONNAGE OPERATING IN TRADE WITH CENTRAL AMERICA,SOUTH AMERICA AND THE FAR EAST FROM 5EPTEMBER1'-^191ST0 JANUARYIsr-l^l?. 4,000,000 3500,000 3,000,000 ■ 2500,000 2,2aj,3S5 2,1+7.4 J »*" 2,000,000 15 00,000 1.000,000 500,000 DEAD- WEIGHT TONS-0 TOTAL AM EB I 3.719.994 CAV«f 3.i67. 1559.7^4, l+3t,i4H ,,s^:^eo^ £0. L^^ ?o. 44^^ FoRei^,^2--- CONTRJU-_^, 5fli 392^94 IW-+.97S 5.070,2 ig 1747,719 1516,979 3.I9S.2A4 I.S3I.2ZI 1.555310 I344. See p. 30,000 20.000 10,000 190 REPORT OF THE WAR TRADE BOARD. merated above or from the branch hydrographic offices. For prac- tical purposes this entirely removed any restrictions as to a "war zone.'' Nevertheless the Board continued until March 21 to furnish information regarding the location of mines and advice as to courses. At that time the Board announced that it would cease to perform this service, but that, as dangers still existed, shipping men were urged to avail themselves of the services of the Hydrographic Office of the Xavy Department. IVairer of gioaranty to return. — Although the tonnage situation did become more f av«rable by the middle of December, 1918, the War Trade Board did not. until May 1, 1919, discontinue entirely the rule which required applicants for bunker licenses to give the guaranty to return, discussed on page 122. However, shortly after the armis- tice, the Board began to consider individual cases and to release licensees from their agreements to return when the circumstances warranted such action. Thus there were a number of American and neutral sailing vessels which were stranded at foreign ports, unable to obtain cargoes with which to return to the United States, because import restrictions had not yet been raised and the cessation of hostilities had ca'used a cessation in the demand for war materials. The War Trade Board accordingly released these vessels from their obligation to return directly to the United States and permitted them to trade wherever the opportunity arose, provided they would agree to return to the United States upon the completion of this intermediate voyage. On December 13 the Board, pending the final conclusion of the shi]5ping agreement between Holland and the Associated Governments, authorized the granting of bunker licenses to Dutch vessels without requiring a guaranty of return. On January 9, 1919, the Board gave instructions that no guaranty to return to the United States should be required from Swedish vessels carrying iron ore from Sweden to this country and load- ing here with coal for Sweden. Norwegian vessels were released from the Norwegian sailing-ship agreement in February, 1919, and the guaranty to return was also waived with respect to them, the only restriction still retained being that they should comply with the blockade regulations and refrain from engaging in trade with or in the interest of Germany or her allies. There were also several cases of individual vessels which came before the Board for action, in which decision was made to waive the guaranty to return to this country on condition that the owners agreed that the vessels would be returned to the United States if the War Trade Board so requested. Thus, it was the policy of the Board to release vessels from the agree- ment to return whenever the situation seemed to call for such action, and yet the guaranty was not dispensed with until May 1, 1919. The reason for retaining this provision for so long a period after the signing of the armistice was the precautionary one of retaining suffi- cient tonnage within the control of the United States to meet any emergency should military conditions in Europe suddenly change. Ocean shipping preferences. — The system of priority shipments for exports to the east coast of South America, called into existence by the shortage of tonnage in this region and announced on November 11, EEPOKT OF THE WAR TRADE BOARD. 191 1918/ to become effective one week later, aimed (1) to insure speedy delivery to the countries on the eastern coast of South America of commodities essential to the production in those countries of mate- rials urgently needed by the United States and the countries asso- ciated with it in the prosecution of the war, and (2) to supply, in so far as the available tonnage permitted, those articles necessary for the A'ltal economic needs of those countries. The signing of the armistice so changed the situation that the original plan was never put into effect. A new scheme was devised, which became effective December 8, 1918, and aimed to giA^e priority to old business over new business. Accordingly, priority was given to shipments co\- ered by export licenses dated prior to November 12 over those covered by licenses dated from November 12 to December 7, and the latter were in turn given priority over shipments covered by licenses dated after December 7, 1918. The highest priority was given to shipments for which the Board considered expedition to be of the utmost importance. In this plan no priority rating was given to cement and lumber, as these were so heavv and bulky. However, the tonnage situation was sufficiently relieved by January 13, 1919,' for the Board to announce that priority for the shipment of cement and lumber would be given as for all other commodities, except that not more than 500 tons of each would be given shipping preference in the cargo of any one ship. If, however, there was insufficient cargo of other commodities to load a given ship, then more than nOO tons of either cement or' lumber might be shipped. The need for maintaining a system of shipping preferences disappeared with the increase of tonnage in this region, which occurred after January 1, 1919. _ On December 1, 1918, just a week before the system became effective, the total tonnage engaged in trade between the United States and the east coast of South America was 219,000 gross tons, and by January 1, 1919, it had increased only 25,000 gross tons. However, on February 1 the tonnage engaged in this trade amounted to 427,000 gross tons, practically double what it was when the system of shipping preference became operative, and by March 1 this figure had increased to 526,000 gross tons. The situation was such that on February 15, 1919, the Board announced that, as it appeared that there would be sufficient tonnage to carry all the cargo which would in the immediate future be presented for shipment, the sys- tem of ocean shipping preference was abolished. The extension of the use of the time license. — When the tonnage situation ceased to be a controlling factor in the policy of the Board, the necessity for requiring a separate bunker license for each voyage no longer existed with respect to certain classes of vessels. The fact that the blockade against the Central Powers was still retained, how- ever, prevented a complete relaxation of bunker control. The method adopted for thus retaining control over shipping without insisting upon individual licenses for every trip was to issue "time licenses." Such licenses had been issued for specified periods of time since April, 1918, but their use had been confined to ferryboats, fishing boats. 1 See pp. 136-137. 192 EEPOET OF THE WAR TEADE BOAED. and freight and passenger boats making more or less regular trips be- tween ports of the United States and ports of adjacent countries. The majority of these licenses issued during 1918 were granted to vessels operating between Puget Sound and British Columbia and Alaskan ports, vessels operating in the Great Lakes, and vessels en- gaged in the oil trade-between United States Gulf ports and Mexican ports. On February 11, 1919, the War Trade Board extended to a considerable degree the use of the " time license." From this date such licenses might also be issued to : (1) All vessels owned by the United States Shipping Board, (2) All vessels under allied flags, (3) All American vessels not owned by the United States Ship- ping Board except vessels engaged exclusively in the trans- portation of mineral oil, and (4) All neutral vessels operating under time charter approved by the United States Shipping Board, operating regularly in any line service or regular routes, provicled ports of Germany or her allies, or ports of the northern neutrals, in- cluding Iceland and the Faroe Islands or Finland, were not included. In case of -s'essels operating under time charter, the scope and life of the license were determined entirely by the trading and time limits prescribed in the charter party. In all other cases the time license might be made valid until recalled, provided the vessel continued to operate within the trading limits originally applied for. If a ves- sel wished to change these trading limits it was necessary to obtain the approval of the Board. In the case of allied vessels and American vessels owned by the United States Shipping Board, this approval could be granted by the agents of the Board or by the collectors of customs withou.t refer- ence to Washington. During the life of a time license, the license served as authority to take on any amount of bunker fuel or ships' stores that was desired. Time licenses for ves.sels under the flags of the Allies and for vessels owned by the United States Shipping- Board might be issued by agents of the Board or by the collectors of customs without reference to Washington. On February 20, 1919, the agents and collectors were authorized to issue time licenses for a period of three months, or if the vessel was under time charter for the duration of the charter, to all American vessels engaged exclu- sively in transporting oil on more or less regular routes between ports of the United States and all other ports of the world except those of Finland, Germany, and her allies, and the northern neutrals, includ- ing Iceland and the Faroe Islands. The reason for making the ex- ceptions noted above was the necessity of maintaining the blockade upon Germany. The fact that time licenses could be secured and that such licenses were of advantage to them did not seem to be fully recognized by the owners and time charterers of vessels, judging from the applications which continued to be made for trip licenses. Conse- quently instructions were sent to the agents and collectors of customs that, beginning April 10, 1919, no more trip licenses were to be issued for the vessels enumerated in the instructions of February 20 and in the first two classes enumerated in the instructions of February 11, as stated above. Time licenses valid until revoked were to be issued by REPORT OF THE WAR TRADE BOARD. 193 them for these vessels, trading limits in such licenses to read as follows : "Trading world-wide except to Germany and Soviet Eussia." It will be noted that the restrictions against Finland and the northern neu- trals were removed by these instructions. Applications for trip or time licenses for American vessels not owned by the United States Shipping Board and for neutral vessels were still referred to Wash- ington. On May 1 the time license as thus developed was still fur- ther extendedto include all vessels of all flags. This accomplished the total abolition of the trip license except for vessels desiring to proceed to Germany or Soviet Russia. For such voyages a special permit or license was required. THE FULFILLMENT OF DEFINITE OBLIGATIONS. Statement of tlie Problem. The sudden collapse of the Central Powers in November, 1918, resulting in the armistice, gave rise to many serious problems in re- gard to the position the War Trade Board should take concerning price control. In order to assure suf&cient food supplies for the United States and the Allies, the Food Administration and the De- partment of Agriculture ha,d actively encouraged increased produc- tion of certain food supplies; the Bureau of Mines, the Geological Survey, and the War Industries Board did all in their power to stimu- late increased production of certain ores and metals essential for the war program ; high prices, due in part to the heavy demands of the Government, or to the difficulty of obtaining the given goods from abroad, which in turn was partly the result of the restrictions' of the War Trade Board, stimulated the investment of capital in the production or purchase of these goods; in other cases the Gov- ernment or its agents entered into contracts for the purchase of con- siderable quantities of essential commodities for vmich war prices were paid. With the signing of the armisticCj the heavy demand of the Government for supplies was greatly diminished, and as the amount of shipping in commerce increased and the producers of the world began to compete for the world's markets, there was a tendency for prices to fall. Should the War Trade Board use its power to regulate trade and maintain restrictions or even make new restric- tions for the purpose of preventing the losses which would result if prices should decline ? General Policy of the War Trade Board as Regards this Problem. The general policy followed by the Board was to impose no restric- tions upon commodities theretofore unrestricted, and to maintain re- strictions only when the Board was informed by a competent gov- ernmental department that the Government was under a definite obli- gation to protect from loss those who had acted in its behalf. 103584^20 14 194 REPORT OF THE WAR TRADE BOARD. Imports Still Restricted or Controlled Three Months After the Armistice. On February 11, 1919, the importation of the items listed below was either restricted or controlled. The date on which the restriction or control was removed is given after each item. 1. Breadstuffis, except wheat, wheat flour, and rice i Feb. 13, 1919. 2. Feathers Feb. 25, 1919. 3. Peanuts Mar. 11, 1919. 4. Rice Mar. 17, 1919. 5. Ferromanganese and spiegeleisen Apr. 1, 1919. 6. Emery May 13, 1919. 7. Bananas and plantains Mar. 3, 1919. 8. S.'ilvarsan, neosalvarsan, arsphenamine, and their equivalents Still in effect June 30, 1919. 9. Sugar Do. 10. Wheat and wheat flour July 1, 1919. 11. Nitrate of soda Do. 12. Pig tin Aug. 1, 1919. 13. Metal alloys containing more than 20% of tin — im- portation prohibited Feb. 3. 1919 Do. 14. Tin ore and tin concentrates — importation prohibited Mar. S, 1919 July 1, 1919. The control over the importation of bananas and plantains was imposed on July 24, 1918. No licenses were issued for the importa- tion of these articles except on condition that the fruit should be shipped on a vessel approved for that purpose by the Caribbean Committee of the United States Shipping Board. The original purpose of this control was to release for the use of the Army the refrigerator ships in the service of the United Fruit Co. This pur- pose attained, the control was maintained for a longer period to enable the Caribbean Committee to maintain a proper passenger service for the West Indies, Central America, and Colombia. On March 3, 1919, the War Department delivered to the Caribbean Com- mittee a steamship to be used in this service, and this removed the necessity for maintaining longer, the control over the importation of bananas and plantains. On November 23, 1918, the War Trade Board put into effect the regulation that no licenses for the importation of salvarsan or its equivalents were to be issued except upon the recommendation of the Federal Trade Commission. The control was so placed because ' these drugs, originally controlled by the Germans through patent rights, were being produced by four concerns to which the Federal Trade Commission had sold the patent rights. The latter approved or disapproved the importation of these drugs in accordance with the requirements of the United States Public Health Service. The chief reason for maintaining this control was that it furnished the machinery whereby the proper testing of these dangerous drugs might be assured. Beginning with June 16, 1919, the right to pass upon applications for the importation of these drugs was transferred from the Federal Trade Commission to the Public Health Service. The remaining restrictions enumerated above were maintained. (1) For the purpose of preventing severe losses to those to whom the Government owed a definite obligation and who were left at the close of hostilities with large stocks acquired at high' cost either at 1 Tapioca and .sag'O were removed Dec. 20, IDIS. REPORT 01' THE WAR TRADE BOARD. 195 the request or upon the assurance of the Government that they would, be protected from loss; or (2) Pending an investigation by tlie Board as to whether such definite governmental obligation did in fact exist. U.S. IMPORTS OF NITRATE OF SODA FROM ALL COUNTRIES." iV MOMTHS.FROM JANUARY 1,1917, TO MAY 31,1919. THOUSANDS OF LONG TONS 196 REPORT OF THE WAR TRADE BOARD. U.S. IMPORTS OF TIN AND TIN CONCENTRATES FROM ALL COUNTRIES BY MONTHS FROM JANUARY 1.1917. TO MAY 31,1919- MILLIONS OF POUNDS- TIN ORC (concentrates). TIN (metal). HEPORT OF THE WAE TKADE BOARD. 197 U.S. EXPORTS OF PORK AND PORK PRODUCTS TO NORWAY, SWEDEN, DENMARK AND HOLLAND, FROM JANUARY 1,191Z TO APRIL 30,1919, BY FOUR MONTHS PERIODS. 198 EEPOKT OF THE WAR TRADE BOARD. TRANSFER OF BOARD ORGANIZATION TO THE DEPARTMENT OF STATE. By June 30, 1919, the end of the fiscal year, the war-time control of trade exercised by the War Trade Board had been relaxed to such an extent that it was no longer necessary to maintain the organiza- tion of the Board as a separate agency of the Government. On this date the few remaining restrictions on trade were being maintained for the purpose of enforcing the continued blockade of Germany, Hungary, and Soviet Russia, and also for the purpose of exercising a certain amount of control over the importation or exportation of a small number of commodities. To continue these limited activities of the Board and to complete certain miscellaneous work connected with the liquidation of its af- fairs, and in accordance with Executive orders ^ signed by the Presi- dent on March 3, 1919, and May 12, 1919, respectively, the War Trade Board, on June 30, 1919, was merged into the Department of State and its personnel and fvmctions transferred to that department. By direction of the Secretary of State the organization thus trans- ferred was established as the War Trade Board Section of the De- partment of State. ' See Appendix, Exhibit I, Sections X and XI. PART V. THE ORGANIZATION OF THE WAR TRADE BOARD. 199 BUREAU OF ADniNISTRATION — g 'A m :z. m BUREAU OF BRANCHES ^CU5T0n5 DIVISION OF INFORnATION — 5UREAU OF inPORTS BUREAU OF EXPORTS BUREAU OF TRANSPORTATION BUREAU Of ENEDY TRADE BUREAU or RESEARCH BUREAU OF TABULATION ^ STATISTICS BUREAU OF VAR TRADE INTELU&ENCE BUREAU OF FOREIGN AGENTS o ^ n -p o rr ' m ^ > < 35 -L > — s 33 n -4 -i z pO > p- ;s fri z. rn > 2 p 200 I. THE EXECUTIVE OFFICE. WORK OF THE MEMBERS OF THE BOARD. Pursuant to the Executive order of October 12, 1917, by which the War Trade Board was established, the membership of the Board comprised representatives of the Secretary of State, of the Secretary of the Treasury, of the Secretary of Agriculture, of the Secretary of Commerce, of the Food Administration, and of the United States Shipping Board. Except for the Secretary of the Treasury, the same governmental officials were represented on the Exports Administra- tive Board, the organization which preceded the War Trade Board. These men, under the instructions of the President and in accord- ance with the general lines of policy laid down by him for the con- duct of the war, were responsible for formulating specific poli- cies with reference to war trade and for their execution in such way as to contribute to the successful outcome of the war against the Cen- tral Powers. The preceding pages offer a measure of the results ob- tained. In the execution of this stupendous program success depended upon the division of function. The magnitude of the problem was beyond any single personality, and the final result was due in large part to the faithful work of the organization developed. The Board members devoted their efforts to the formulation of the larger lines of policy. The administration of this policy was left to the several units of the organization. The nature of the problem required that in addition to the usual administrative bodies necessary to the smooth working of any functioning agency of large tiize, this particular war board needed agencies for the assembling, analysis, and interpretation of facts upon which to base sound policy ; and it further needed agencies to exercise the control over foreign trade which justified the formation of the War Trade Board. The following bureaus were organized to exercise these three classes of functions: I. Administrative agencies : 1. Bureau of Administration. 2. Division of Information. 3. Bureau of Branclies and Customs. II. Agencies of investigation and researcli : 1. Bureau of Researcli and Statistics. 2. Bureau of'War Trade Intelligence. 3. Bureau of Foreign Agents. III. Agencies of control : 1. Bureau of Exports. 2. Bureau of Imports. 3. Bureau of Transportation. 4. Bureau of Enemy Trade. With the bureaus thus established to carry on the daily routine of control over foreign trade, the members of the Board were free to coordinate its policies with those of other Government bodies in 201 202 REPORT OF THE WAR TRADE BOARD. Wasliington and of the Allied Governments associated with the United States in the war. This worlv carried certain members ot the Board abroad at times and they played an important part in negotiations with the Allies and with neutral Governments. _ To maintain a close contact between the bureaus and the Board, some of the bureau directors from time to time attended meetings of the Board. Further contact of a supervisory character over the im- mediate licensing policy of the bureaus was effected through the or- ganization of a Board committee for this purpose. THE CONTRABAND COMMITTEE. The issuance of the Proclamations of February 14. 1918, increased the work of the War Trade Board to such an extent that it was deemed desirable, early in 1918, to form a new Committee to assist in the formulation of the rules and regulations of the War Trade Board ; to handle special cases which were constantly arising ; and to audit the work of the various Bureaus, which were growing rapidly in size. On February 12, 1918. the Board appointed the Contraband Committee, consisting of Mr. C. A. Richards, Chairman; Mr. P. C. Anderson, Mr. W. K. Macy, Mr. E. A. Strong, and Mr. C. J. Mc- Carty. On Mr. McCarty's resignation. Mr. J. W. McCrosky was ap- pointed in his place, and Mr. E. K. Morse was later added to the Com- mittee. The work of the Contraband Committee consisted of : (1) Formulation, for the consideration and approval of the War Trade Board, of rules and regulations governing the issuance of licenses. In order to appreciate fulh' the necessity for this work by the Con- traband Committee, it should be borne in mind that the personnel of the War Trade Board had grown during the preceding six or seven months from a comparatively few men to several thousand; and, in consequence of the constantly enlarging activities of the Board, it be- came necessary for some one subsidiary committee constantly to watch and analyze regulations which were being proposed from time to time, so that when these reached the Board they might have the benefit of the committee's opinion as to their practicability, necessity, and noninterference with other regulations. Some of the regulations which were proposed had to do with the various commodities the ex- portation of which was to be permitted under certain conditions. These regulations were necessary to insure that all applicants should receive equal treatment; and, furthermore, without distinct rulings under which licenses were to be granted, it would be impossible to audit the issuance of licenses. It will be seen from the following summary of the work of the Committee that there were three kinds of rulings handled by them — " commodity," " country," and " pro- cedure" rulings. The last-mentioned rulings related to methods of applying for and granting licenses, regardless of country or com- modity rulings, and to the internal procedure to be used in the offices of the War Trade Board. (2) Disposition of special cases which were not covered by the existing rules and regulations, or which necessitated an exception to the rules and regulations. As it Avas impossible to draw any rulings capable of being audited which would be sufficiently elastic to permit of exceptions being made, KiaJr-UKT Oi' THE WAR TRADE BOARD. 203 and as it- was deemed unwise to permit exceptions to be made bj' individuals, tlie War Trade Board adopted the principle of liaving its regulations drawn up in definite shape; and then if any Trade Adviser or other official of the Board received an application which had some special merit to it, and which, in his opinion, warranted special treatment and possibly the granting of a license contrary to the general rules, this case was brought to the attention of the Contra- band Committee, who, after receiving all the evidence and recom- mendations, would decide Avhether or not the license should be granted. The War Trade Board authorized the auditors to pass licenses issued as exceptions to the rules when the applications had the approval of the Contraband Committee, as shown by special reso: lution. It will be seen from the following that, while the Committee was operating, 1,162 special cases were brought to their attention, of which there were 1,111, or practically 95 per cent, in which they approved the issviance of a license. There were 51, or about 5 per cent, where the applications were refused. In certain instances the application was sent to the Contraband Committee by the appro- priate officials with the recommendation that it should be refused, although the official concerned felt that there was sufficient merit in the application to have the Contraband Committee pass upon it be- fore a definite refusal was made. (3) The auditing of all export and import licenses. In order that there might be no question as to the strict adherence to the regulations in the issuance of licenses, the War Trade Board directed the Contraband Committee, as fast as the regulations were drawn, to arrange for the auditing of licenses before the licenses were actually granted. This meant that the application had to re- ceive the appropriate approvals of the various officials through whose hands it passed, and then the application was sent, with the license ready for issuance, to the auditors, who acted as " checkers " of the work of the Bureau of Exports, as well as of the decisions of the Trade -Advisers, etc. In order that the auditing might be absolutely fair and impartial, the War Trade Board made a contract with a well- known firm of public accountants to do the work, quite independ- ently of any official in the employ of the War Trade Board. The maximum number of auditors employed (at the time the Contraband Committee was disbanded on Sept. 30, 1918) was 22. From a small start, the auditors handled an increasing number of applications as the rulinos were made by the Contraband Committee, until at the time the Committee disbanded they were handling on an average of 6,500 daily. . .. ^ ^ ^ ^v, (4) The consideration of all evasions or attempts to evade the rules and regulations of the War Trade Board or the Espionage Act or the Trading with the Enemy Act in so far as they related to export and import licenses, and the adoption of appropriate measures in cases where it was satisfactorily proven that there had been an evasion or attempt to evade the rules and regulations, and the recom- mendation, through the proper channels, to the Department of Justice for prosecution of the cases of evasions or attempts to e.ade the Espionage Act or the Trading with the Enemy Act. Inasmuch as the possession of an export license especially for some commodity which was being strictly conserved fd destined for some market which very much needed the product, meant the 204 REPORT OF THE WAR TRADE BOARD. possibility of a handsome profit to the holder of the license, there was always the temptation existing for the exporter to make some statement in his application which was not justified by the facts. To the credit of the American exporter, it may be said that there were very few attempts at misrepresentation in applications, or at- tempts to evade the published rules and regulations of the War Trade Board. Occasionally some applicant would misdescribe the goods or misstate the use for which the goods were intended abroad. In order that cases of this character might be treated with absolute fairness, and to make it impossible for any one person to penalize an exporter who had unwittingly made an incorrect statement or mistake in his application, and at the same time to enable the fullest investigation to be made of cases where it was apparent that delib- erate attempts were being made to evade the law, the War Trade Board authorized the Contraband Committee to investigate these cases, which had been handled hitherto by numerous individuals. These matters were, therefore, handled with due regard to proper legal evidence and procedure. Following is a brief summary of the work of the Contraband Committee : Commodity rulings approved liy tlie War Trade Board 122 Commodity rulings rejected by the War Trade Board 3 Country rulings approved by the War Trade Board 28 Country rulings rejected by the War Trade Board Procedure rulings approved by the War Trade Board 32 Procedure rulings rejected by the War Trade Board Special cases — total number of resolutions 1,162 Resolutions approving issuance of licenses 1, 111 Resolutions refusing, issuance of licenses 51 THE RUSSIAN BTTREATJ. The desirability of rendering economic aid to Russia and Siberia, both from a humanitarian and strategic standpoint, led the chairman of the Board to submit a memorandum to President Wilson on October 1, 1918, recommending the appropriation of $5,000,000 to be used as a revolving fund for the purchase and shipment of sup- plies vitally needed by the Russians located in the regions where the Czecho-Slovak forces were operating. There was great need for clothing, shoes, foodstuffs, machinery, hardware, and household uten- sils. The President's approval of this plan having been received, a corporation was organized under the laws of the State of Connecti- cut, known as the " War Trade Board of the United States Russian Bureau, Incorporated." The officers of the corporation were all mem- bers or employees of the War Trade Board. The Russian Bureau at once made arrangements with the War De- partment for the release of five ships on the Pacific coast for the transportation of materials to Siberia. The cargoes of these vessels included military supplies for the Czecho-Slovak forces, railway material for the Trans-Siberian Railway, shoes and other clothing for the Russian population, some miscellaneous cargo, and supplies for the Red Cross. Among other things, the Russian Bureau procured and transported to Siberia samples of a wide range of commodities of American manufacture with the understanding that it would undertake to re- REPORT OF THE WAR TRADE BOARD. 205 ceive and transmit orders against these samples and assist American exporters and manufacturers to distribute tlieir goods in that coun- try. The signing of the armistice brought an end to exportation to and importation from Siberia by this bureau, but it still continued to give such assistance to trade as was possible without incurring obligations that would continue beyond the dissolution of the War Trade Board. Other work that was done by this bureau includes the rationing of the Murmansk and Archangel districts, the opening of the Black Sea ports to general trade, and assistance in securing tonnage in the Pacific to move railway material belonging to the Russians from the Pacific coast of the United States to Vladivostok in order to relieve the serious port congestion at the latter place. The subsequent pages of this report outline in some detail the structure and functions of the various bureaus of the War Trade Board and the work accomplished by them. II. ADMINISTRATIVE AGENCIES. THE BUREAU OF ADMINISTRATION. HISTORICAL, OUTLINE. The development of the activities of the Bureau of Administration may be arranged in tliree periods: (a) The first is a continuation of the conditions as tliey existed in the latter part of 1917, which was one of intense activity and constant increase in personnel; (6) the second began about April, 1918, and continued for some months, be- ing a sort of high level on which frequent peaks of maximum load existed; (c) the last period followed the armistice, when the former objective of maximum work and speed was changed to the opposite — of maximum reduction of function and personnel. Broadly speaking, the function of the Bureau of Administration was to furnish the personnel, space, equipment, supplies, and efficient organization to carry out the policy of the Board. The elements brought into play were, first, external, over which the Board had no control; second, those affecting the organization internally. The above elements, as affected by the lapse of time, show a rising tide of demand in. 1917 and the first half of 1918, not reaching its crest until about a week after the armistice was signed. The supply of personnel never entirely kept pace with the demand until after the armistice was signed, so that the problem of the Bureau of Administration always kept it working at high pressure. As to the external elements, the first problem was to find the sources of supply for personnel. The chief of these was the Civil Service Commission, under which this Board has always operated. The commission can not be given too much credit for the cooperation it has given the Board at every step. In addition to the regular machinery of the commission in supplying eligibles through its reg- isters, it was able at an early date to secure an Executive order whicli enabled this bureau to avail itself of the services of the highest class business and professional men in the country. The patriotism of this class of citizens always supplied the War Trade Board with a long list of applicants from which to choose. The commission estab- lished a special section of the clerical register for college graduates. In certain bureaus this class of college-educated clei'k was found to be as valuable for junior investigators, special assistants, etc., as were lawyers and experts formerly paid a much higher salary. In addition, the commission held regular examinations in the "War "Trade Board Building, and allowed the greatest legal latitude to the Board in the appointment of temporary employees, and later supplied facili- ties for examining these temporaries in the building, so as not to interrupt the work to any great extent. 2f6 ±tJ!ii-UKT U±' TMJi; WAK TRADE BOAED. 207 The most serious external element to be overcome was the housing condition. It was not only a question where housing facilities could be obtained, but whether they could be obtained at a jorice that the average employee could pay. The War Trade Board, through this bureau, was the first department to take active steps to reduce these objections to a minimum by equipping its welfare department with aucoinobiles for investigating available homes and taking care of tlie appointees coming from other cities. Another serious difficulty was the somewhat low scale of salaries adopted by the Board and in force during the early part of the year. The unavoidable competition caused by the higher salary scales of the other departments resulted in the Civil Service Conmiission allowing the War Trade Board to adopt a general scale of salaries that proved to be a complete solution of the difficulty. Up to the time of the occupation of the new building tlie se])aration of the various bureaus in 11 different buildings made the work of administration a most serious problem. On entering the new build- ing, however, the excellent arrangement of the building and the con- solidation and concentration of the bureaus made it easy to introduce the highest possible efficiency. The division of the Board into bureaus and the establishment of new committees during the year i-equired the addition of a large new personnel, including both high-class of- ficials and clerical help. Some of these additions were the Contra- band Committee, Violations Committee, Eussian Bureau (Inc.), and Exports Executive Committee. An assistant auditor was emjjloyed to make a study of the question of internal organization. His work took the form of introducing labor-saving systems in the various offices, constant inspection of the force to " take up the slack " and avoid overemployment, the intro- duction of labor-saving mechanical devices in many of the statistical divisions, and especially cooperation with the office managers to de- velop their bureaus along the line of highest efficiency. As in business, the most difficult situations to handle were the spe- cial peak loads. The character of the work of the Board was such that one could never anticipate with accuracy how much the demands of a particular department would increase in a given period of time, with the result that its requirements could not be taken care of imme- diately at the desired moment. The required degree of elasticity was obtained by the Office Service Division, which handled all the vexa- tious problems concerning messengers, mimeograph, printing, tele- graph and cables, telephones, emergency work, etc. One of the greatest difficulties in the organization arose from the effect of the influenza epidemic. This subject is treated under the head of the " Welfare and Social Service." How well the work was handled under this difficulty may be appi-eciated from the fact that the work of the entire organization was but slightly interrupted, id- though 25 per cent of the personnel of the Board was affected. After the declaration of the armistice it was necessary to bring about a complete reversal of policy, owing to the demand from Congress and the country at large for an immediate relaxation of license restrictions. The problem thus presented was to reduce the personnel of the Board as rapidly as possible without interfering to any perceptible extent with still necessary functions, and to do this 208 EEPOET OF THE WAE TRADE BOARD. in such a way as to protect, as far as possible, the interest of the in- dividual employee and provide for his continuity of employment. Much thought was given to this subject, and by the cooperation of the Civil Service Commission the problem was solved through the re- employment register, established by Executive order. The greatest encouragement was given employees to enter their names and avail themselves of the opportunities offered by other departments of the Government. The record is rather remarkable that almost 100 per cent of the employees who resigned, but who desired to continue in Government employ, found employment in other departments. The subscriptions made by the members of the War Trade Board to the third Liberty loan amounted to $544,100 ; to the fourth Lib- erty loan, $1,334,450, making a total subscription of $1,878,550. During the period from June 21 to December 21, 1918, the sales of war savings stamps and thrift stamps within the War Trade Board aggregated $13,015.10. The total subscriptions made to the second Eed Cross war fund amounted to $5,615.16. These figures show some of the activities within the War Trade Board to stimu- late the " winning of the war " campaign. Financial statements setting forth the appropriations made to the War Trade Board during the year 1918 and the classes of expenditures incurred by the Board as a whole and by its separate bureaus are given in the Appendix. Further information of a financial character is brought out by several graphs accompanying these statements. Interesting information is disclosed in the tables and graphs set forth in the Appendix of this report, showing the increase and decrease in the personnel of the Board during the periods preceding and after the armistice. There is also a table giving an estimate of the salaries paid to the various grades of employees. f TJHCTIONAL DIVISIONS OF THE BUREAU OF ADMINISTRATION. The Bureau of Administration was separated into 15 divisions, as follows : ^ Division of Accounts. Disbursing Office. Building and Maintenance. Cafeteria. Construction and Repair. Telephone and Telegraph. Purchasing and Supplies. Printing. Appointments and Personnel. Welfare and Social Service. Office Service. Messenger Service. Motor and Bus Service. Mailing Division. Addressing, Multigraphing. and Mimeographing. Reception Room. Division of Accounts. — This department received checks, verified and otherwise, and examined all invoices, vouchers, and other papers representing claims against the War Trade Board for supplies, ex- penses, and service. It analyzed, classified, and recorded the finan- cial transactions of the Board and compiled and presented periodic statements. After January 1, 1918, the more important changes were: (a) The introduction of the graphotype and addressograph machines, by use of which all pay-roll sheets and all salary checks > For Dersonnel of the varloua divisions, see Appendix. >■=> 3 St 5S c<3 = t 5S -Z2Z 209 210 REPORT OF THE WAR TRADE BOARD. were automatically written, thus doing away with the former method of Avriting- checks by hand or typewriter; (&) improvement in the filing system as regards purchases, orders, vouchers, etc.; (c) im- provement in the method and time consumed in paying employees ; {d) installation of a new accounting system for general transactions of the organization for the fiscal year 1919, which made it possible to verify the disbursing office statements; to keep a close check on the work of the purchasing agent, of printing, construction and repair work, and the multigraphing and mimeographing divisions; to render accurate monthly statements, and otherwise present clear and intelligible I'eports on the general accounts of the disbursing office. Dishnrs'niti Ofpce. — This office had as its function the actual dis- bursing of fmids allowed or appropriated for the War Trade Board, and was responsible for the legality and accuracy of these disbursements in the United States and to the "War Trade Board foreign agents and representatives abroad. The disbursing officer was bonded to the Treasury Department in the penal sum of $50,000, and had a credit on the books of the Treasury of the T'nited States of not more than $150,000 at any one time, althouah dixring one fiscal quarter a sum in excess of $1,000,000 was disbursed. The Disbursing Office was charged with the duty of making monthly balances with the Treasurer of the United States; was re- quired to render a quarterly account current to the Treasury Depart- n^ent ; was re(]uired to jDass on the valiclit}' of claims made against the appropriations available to the War Trade Board; was respon- sible for the collection of export and import cable charges, miscella- neous receipts, special deposits, etc. ; handled the sale and subscrip- tions of the third and fourth Liberty loans ; and was the authorized agent for the sale of thrift stamps and war savings stamps. The head of this division was required to knoAv the law governing the War Trade Board and its appropriations, and to see that the laws were observed in all cases where Government funds were involved. For failure to observe the laws and the interpretation thereof by the Comptroller of the Treasury, the disbursing officer was subject to disalloAvances and suspension by the Auditor of State and other De- 23artments. Bunding find M ii'intcnance^ ConHtriirfion and Refah\ Telephone and Telegraph. — ^Prior to April 19, 1918. the War Trade Board was housed in 11 different buildings, which were maintained and oper- ated in almost e\ery case by the Bureau of Administration. In an- ticipation of moving to the new building, these offices were disposed of either by assignment, cancellation, or release, in accord with the privileges contained in the leases, so that by May 1, 1918, the War Trade Board had been relieved of all obligations in connection there- with. The War Trade Board building was planned by Mr. Waddy B. Wood, and the construction of it supervised by Mr. T. J. D. Fuller, acting as "\\'ar Trade Board architect for the Bureau of Administra- tion, and Mr. George W. Welsh. Ground was broken on January 16, 1918, and the building was practically ready for occupancy 90 days later, April 15, 1918. On April 19, in accordance with the prearranged KEJPOKT OF THE WAR TRADE BOARD. 211 plans, the organization l)egan to niox'e into new (juarters. Ollice equipment for -2,000 employees was moxed from 11 different build- ings, onh' two of which had elevators, without mishap or loss. It took approximately 500 loads to accomplish the transfer, which was completed on April •21. IDlS. This new building contained approxi- mately 2-!0,000 square feet of floor space. It was equipped with an autouuitic flre-sprinkler system and with an (jverhead aero alarm system. It was equipped with 2,000 shades, screens, and awnings shortly after it was occupied, and with 500 electric fans at the begin- ning of the smnmer. The building was watched and patroled night and day, and was maintained and operated in every particular by employees of the Board. A system for checking employees and visi- tors i)assing in and out of the building was installed, and a fire brig- ade organized. A division of construction and repair was main- tained, and a telephone and telegraph system kept running from early morning until midnight. During the first six months of 191'.* the Building and ^Maintenance and Construction and Repair Divisions were rapidly diminished, due to the decreasing personnel, and to the further fact that the com- mittee designated by Congress to take charge of public buildings in early May assigned the second floor of the Board building to the AVar Department, and on July 1, liJ19, took possession of the entire building. The Grounds Committee and the War Department put in its own guards, porters, and charwomen, and the corresponding em- ployees of the Board were released. Not the least of the moving problems was the maintenance of adequate telephone and telegraph service during the period when the organization' was moving from many buildings to the new location, a piece of work that was handled with practically no dis- turbance or break in the service. On December 1 there were 372 main stations and 161 extensions, giving a total of 535 installations in the building. As a result of the signing of the anuistice and the consequent decrease in the amount of telephone traffic, the number of extensions was decreased and reductions made in the number of operators. A^'ith the closing of the branch offices of the Board, contracts for direct lines to these offices were canceled. The Division of Construction and Eepair completed for the month of ^ovember, 191S, 500 jobs. In Deceml)er its work was greatlv reduced because of the new policy of refusing any special construction work, thereby making it possible to drop some of the workmen. Cafeteria. — The cafeteria was not operated Ijy the War Trade Board. As it was, however, a convenience to the employees of the Board, the following statistics may be interesting: The cafeteria served its first meal on April 22, i91«, and for the remainder of the year supplied an a\-erage of S50 lunches per day. In October it served 30,000 meals, including breakfast, lunch, and dinner. The details of the cafeteria plan were not finally decided upon until late in the construction of the building, but in spite of this the room was finished in time for service to begin three days after the first employee had moved into the new building. It proved a great convenience, as well as an economy, to the members of the organiza- tion and brought about a substantial saving of time to the Govern- 212 REPORT OF THE WAR TRADE BOARD. ment. Owing to the large decrease in the personnel of the Board, the cafeteria was closed April 5, 1919. Division of Purchase and Supplies. — This division purchased all supplies and equipment for the War Trade Board, except printing matter, and maintained the stock for the entire organization. The purchases averaged $35,000 per month during 191S, and were han- dled, including the stock keeping, by 11: employees, whose salaries totaled $16,262 per annum. On January 1, 1919, this department consisted of 28 people, and was running an annual pay roll of $31,- 880. At the close of the year 1918 there were practically no old ac- counts; differences Avere adjusted quickly; bills were paid promptly; and business houses wei-e eager for the account of the War Trade Board. During the latter part of 1918 a perpetual inventory was kept, so that at all times it was possible to know the stock on hand and the amount of supplies of each kind issued to the various bureaus. The equipment at the close of the year was reduced to a compara- tively small amount, as immediate action was taken on the sign- ing of the armistice to cancel all outstanding orders. Although some inconvenience was experienced by not having certain equipment, no further purchases or requisition on the General Supply Committee wei:e made, inasmuch as a large amount of equipment Avould be turned back as soon as natural reductions in the force of the Board should occur. During the month of December the total purchase of supplies amounted to only $13,375, which shows how this policy of reduction of expenses was carried out. During 1919 the division was engaged in returning to the General Supply Committee as fast as released all unused supplies and equipment whifch were credited to the Board's inventory. Printing Division. — It was the duty of this division to order all printing matter, including letterheads, envelopes, forms, booklets, notices, etc. ; to keep a stock of these articles ; to keep accourit of is- suance of stock; of cost, charges, etc., with the Public Printer, and with the outside contractors. From January 1 to October 15, 1918, 655 orders were placed with the Government Printing Office, ai'd only 4 with outside printers. This record Avas due to the fact that the Government Printing Office gave extraordinary service, and as a result the expense of placing work with outside printers was saved. During this period bills were rendered for over $60,000 worth of printed matter. Over 1,000,000 index copies, laws, leaf sheets, etc., over 14,000,000 pamphlets, letterheads, and envelopes, and more than 17,000,000 printed forms were ordered. Appointments and Personnel. — This division, which took care of appointments, promotions, and resignations of practically all mem- bers of the organization, was one of the most important branches of the Bureau of Administration. An average of 180 personal in- terviews were given applicants for positions each day — this in addi- tion to numerous letters and telegrams which were handled. A feature which made the work of this division complicated was the necessity for complying with the regulations of the Civil Service Commission, which were numerous, intricate, and exacting. Every regular appointee of the War Trade Board was required to take a written examination, and to pass other tests before perma^ REPORT OF THE WAR TRADE BOARD. 213 nently entered on the pay roll. x\.U promotions had to be justified before the Civil Service Commission, and even when a clerk left the organization, notices and forms had to be filled in and forwarded to the commission. Because of the general conditions throughout the country and the housing and living conditions here in Wash- ington, the procuring of competent employees was extremely difficult. There was an average of 28 changes per day in the organization dur- ing the closing weeks of 1918. Welfare and Social Service. — The welfare work in the War Trade Board was the first of this kind of service to be inaugurated in any of the war boards. Although the welfare division was not created until May, 1918, a certain part of the welfare and social service effort was begun early in the year in connection with the app*oint- ment office. Interviews with prospective appointees and women al- ready employed in the Board brought out the fact that great difficulty was being experienced in finding satisfactory living accomodations ; that great numbers of women already in the city were not properly housed; that many resignations were being received because the individual could not support herself in Washington on the salary received; and that declinations of appointments from all parts of the country were being sent in because of information which had been spread broadcast regarding impossible living conditions in the Capital. The division was discontinued the end of May, 1919. (a) Housing/. — To aid in some measure the strangers coming to the city, each prospective appointee of the War Trade Board was sent a telegram, or a letter if the time permitted, prior to her leaving home, to the effect that she would be assisted in finding suitable living ac- commodations, directing her to the place to report on reaching Wash- ington, and giving other information which might help if she should arrive after regular office hours. The War Trade Board was one of the few departments of the Government which worked independently in assisting employees to find rooms when outside agencies found it impossible ^o cope with the situation. During the year the housing work was extended to procuring rooms, apartments, and houses for any members of the Board who sought to change residence for any reason. Cases of unfair treatment of tenants by landlords and boarding-house keepei-s were investigated and adjusted and numerous cases of imposition corrected. (&) Sick relief. — The unusual weather conditions of the winter of 1917-18 brought many accidents and a large amount of illness. Because of housing the various bureaus of the Board in different buildings during the early months of 1918, some difficulty was ex- jjerienced in getting accurate reports of sickness, but with the cen- tralization of all bureaus in a main building a systematic program of reporting cases of absence by office managers was arranged, pre- liminary and follow-u.p calls made by the welfare division, and arrangements made when necessary for hospital and medical treat- ment. The influenza epidemic in October, 1918, brought out the value of organized welfare work more than an^? other circumstance. When it was discovered how critical the situation in Washington was, with the city hospitals filled to capacity, it was decided to establish an emergency War Trade Board hospital to care for influenza patients 214 EEPOET OF THE WAR TRADE BOARD. of the r>(iard and such additional cases as could be accommodated. The nursing- personnel of the hospital was drawn entirely from our own organization. Sixty-five women volunteered for service and were acceiDted for actual work in the hospital, eight for the United State's Public Health Service, which was opened Um) weeks later, and a large number for work in private homes where cases were so severe that patients c'ould not be removed. In addition, a corps of eight visiting nurses was constantly employed during the epidemic. In all 97 cases were cared for in our hospital and isS in homes. During October a convalescent house for influenza patients was also opened by the War Trade Board and was continued for six weeks. Sixty persons were cared for here and the services of five AVar Trade Boatd women given. AYhen the main AA'ar Trade Board Building was opened in April, 191.S, a series of rooms was set aside for use as an emergency hospital and rest rooun for women employees. Two I'egistered nurses vrere in attendance. During the period May, 1918, to January, 1919, first aid was administered to .1,102 men and women; when necessary, medical aid and hospital treatment were provided. (r) Recrcdflon. — Rather extensive plans were made by the welfare division for the establishment of a vai'ied ])rogram along re?rea- tional and educational lines for the women of the Board. In May, 191.S, a siirvey was begun of summer recreation facilities in Washing- ton, particularly tennis and swimming. Before the sur\'ey was com- pleted the Government Recreation League was organized, and the data gathered independently were turned over to it for general use by all departments. Each week bulletins of the league were posted, outlining reci'eational opportunities for war workers, including ten- nis, dancing, swinnning, outdoor moving pictures, community sing- ing, art and language classes, etc. It was the purpose of the division, through the War Trade Board Club, to arrange classes in language, gymnasium, and other subjects that might be requested from time to time, but it was found expedient to cooperate with those agencies in Washington which were espe; ially equipped to organize such work, such as the Young Glen's and Young AYomen's Christian Asso- ciations, the War Camp Community Service, and the community cen- ters, rather than to form small independent groups. During the summer a basket-ball court was laid out in one of the courts of the building for use by both men and women. The original plan was to have this court floored and roofeil for use as a gymnasium in winter months, but the signing of the armistice and subsequent dis- integration of the Board pre\-ented its execution. (d) ^Yar Tritde Board Clnh. — This organization, started in Janu- ai-y, 1918, was an important cohi'sive element in the War Trade Board. Through a subscription fund raised by the men of the Board, a club house was furnished which scrxed as a general social center for both men and women. The first floor was given over primarily to club and dining rooms and the two upper floors were used for dormitory purposes. Twenty girls were accounuo- dated with rooms, and 00 to 90 persons were'served two meals a day in the dining room. Another house, used for several weeks as a convalescent house for influenza patients, was turned into a dormi- tory in Xovember. Sixteen girls were accommodated in this house. EEPORT OF THE WAR TRADE BOARD. 215 A service counter in the main lobby of the AVar Trade Board Building- was opened by tlie club in the summer of 191H, the proci'eds of which were donated' to war relief. McHKeiuje)- service. — This division included a regular interoffice delivery system and a special call messeni;-er service. During the early part of the year there were about 110 employees doing messenger work, with a total annual pay roll of $60,000, serving about 1,000 persons. This was reduced later to 20 messengers, at an approximate expense of $1^5,000 per annum, and ser\ing over 2,300 people. In addition to the office mail that was delivered on a schedule, over TOO special messages a day were carried. This result was accom- plished through systematizing the Avork and putting the messengers on roller skates. A system of accounting for the work of each messenger was evolvetl and results were very satisfactory. An average of 05 calls a day per boy was made. Motor and hus service. — The motor and bus service provided for the carrying of mail and for miscellaneous carting of supplies, etc. It also ran two passenger cars for special euicrgency use and a motor bus on a sfhedule over a regular route, which covered most of the Government departments. During October bus service was discon- tinued on account of the need for busses to carry patients to the hospital and convalescent home. Xlists and Supplements. (g) Itules and Regulations. (/() I>irectcii-y. (0 ('(infideutial Suspect List and Supplements. (j) The T'loaks List. {(i) The Daily Record. — This publication,, appearing everv work- ing morning, was the confidciitial bulletin of the Board, containing the official annoimceinents of the Board and of the directors of the bureaus, and other data which it was desired to present to officials and other members of the organization. Its daily circulation reached ."■).50 copies. GENERAL INFORHATION TO SPECIAL f?£:QUE5rs EXAMINATION OF PERIOD •)CAi.3 OOVCRNMENT DOCUMENTS tic FOR DATA INTERt5TING TO OTHER ORflArilZATIOHS WAR mADE BOARD CHAlRflAN DIVISION OF INFORMATION A55I5TAMT CHIEF CHIEF OFFICL n/WGER UBRARY PUBLICATIONS EDITING If PROOFREADING TELEPHONE SERVICE FOR PIR50NNEL LOCATION DAILY RECORD WAR TRADE BOARD NEW5 WAR TRADE BOARD RUl-INGS WAR TRADE BOARD JOURNAl. DIRtCTORY DISTRIBUTION TRANSLATIONS CLIPPINGS RULE5 Sj REGULATIONS TO TM£ BOARD ORGANIZATION IN WA5HIMGT0N AND THE BRANCH OFFICES TO THE. GtNERAL PUBLIC ENEriY .TRADING U5T 4 3UPPLEnENT5 THE CONFIDENTIAL 5U5PECT LIST THE CLOAKS-LIST n.lSCELLANEOUS REPORTS 103584—20. (To face page 218.) DIGEST OF THE PRESS NEV5PAPERS TRADE TECHNICAL AND GENERAL. PUBLICATIONS REPORT OF THE WAR TRADE BOARD. 219 (b) The Daily Digest of the Press, appeai'ing tnery noon, was a summary of articles appearing in 40 daily newspapers and over 200 technical and trade journals received, referring either directly to the activities of the War Trade Board or dealing with subjects of special interest to the members of the organization. The Daily Digest attained a circulation of 300 copies, 190 being distributed within the Board, and 110 outside. {c) The War Trcule Board Seirs was published "in the interest of every member of the organization," and each issue went to i^.OOO persons with its welfare and organization news. (d) War T)'ade Board RuMikjs were supplied to the Daily Com- merce Eeports, the Federal Eeserve Board, and ticker services by the division, Avliich also acted as the medium through which statements of the Board were made public b}^ the Committee on Public Informa- tion. (<) The ^Yar Trade Boeird Jounud was printed monthly. It con- tained the rulings and official statements of the Board Avhich had been issued during the preceding calendar month. In the Journal, circulated in editions ranging from 25,000 to 15,000 copies, were printed many of the export conservation lists, with corrections and additions as they became effective. (g) Rules and RegitJeitions of the War Trade Board^ No. 1 and Xo. 2, were brought out in editions of about 50,000 each, at intervals of several months, and contained rulings in force at the time of pub- lication. (A) The Directory of the War Trade Board, which indicated the ])ersonnel and functions of the organization, was issued approxi- matelv every two months until September, 1918. (/) The Enemy Trading List, (/) the Confidential Suspect List, and {]) the Cloaks List, prepared by the Bureau of War Trade In- telligence, were published by the Division of Information. Other publications of the War Trade Board in which the Division of Information cooperated with various bureaus were : The Report of the War Trade Board. Tlie Export Conservation List. Keq-ulations Gnvernina- Form of Cablegrams. Report of the Chairman of thp War Trade Board to the President for the vear 1917. Export Trade Policy of the United Kingdom, 1913-1918. ^ The Economic Position of tlie United Kingdom, 1912-1918. The Economic .Aspects of the Commerce and Industry of the Nether- lands. Brazil, a Sui'vey of pjConomic Conditions since 1913. The Economic Position of .Vrgentina During the War. The Economic Position of Switzerland During the War. In addition to the above, the following confidential publications, for the use of interested departments of the Government, were issued : Memorandum of Agreement Between the War Trade Board and the Norwegian Government. Planish Agreements. , t^ i- n Jlemorandum of Agreement Between Britisli, French and Italian GtA- ernments and the Swedish Government, Adhered to by the War Trade Board. Contract for the Purchase of Swedish Iron Ore. Memorandum Between the War Trade Board and the Government of Switzerland. 220 REPORT OF THE WAR TRADE BOARD. Memorandum Between the Governments of France and Great Britain and tlie War Trade Board and tlie Swiss Confederation. Agreement Between the Royal Netherlands Government and the Brit- ish, French, and Italian Governments and the War Trade Board. Joint Agreement Between the Governments of Great Britain, France, and Italy, and the Netherlands Overseas Trust, Adhered to hy the War Trade Board. The Economic Situation of Japan. The Japanese Steel and Shipping Negotiations. The Trade and Shipping Negotiations with Spain. The Trade and Shipping Negotiations with Denmark. The Rationing Agreement with Norway. The Rationing and Shipping Negotiations ^vith Sweden. The Requisitioning of Dutch Shipping. The Rationing and Tonnage Negotiations with Switzerland. Distribution. — 1. To the Board organization in Washington and the branch offices: (a) The Book of General Instructions (Exports), (6) the rulings of the Bureau of Imports. 2. To the general public r (a) Publications intended for the press and mailing list. The books of instructions were distributed in loose-leaf form to those entitled to receive them to the number of 150,000 pages, and complete books were made up and others rectified as required. The mailing list consisted of 21,000 exporters, importers, indus- trial and commercial organizations, transportation companies, Gov- ernment officials, and individuals, carefully classified. To these were sent the individual rulings as issued, as well as the printed publications of the Board. From January 1, 1918, to July 1, 1919, there were issued 797 press notices, totaling more than 20,000,000 sheets of paper. Of these the Division of Information sent out 7,000,000 sheets to people who received five or more copies each. It also sent out 331,000 Journals, 750,000 enemy trade publications, 96,000 Daily Eecords, 300,000 X-forms, and 550,000 shipping forms. In the distribution section alone there were on an average a thousand personal calls monthly and nearly 2,500 sjDecial orders received and filled through the mails. This section made all requisitions in triplicate to the mimeograph section for the press notices as to the number to be run and the classifications receiving the same. This section also correlated with the mailing section as to the manner, time, and distribution of press notices. Another service was performed by keeping in touch with the members of the different bureaus for the purpose of finding out where the division could be most helpful to them. As one result, hundreds of sets of publications were made up and delivered to those who requested them. The Library. — This section offered three classes of service: (1) The Library proper (books and periodicals), (2) Clipping Service, (3) Translation Section. (1) The organization of the library of the War Trade Board dates from January 1, 1918. Practically no records or accounts were kept of books or periodicals purchased for the Board before that time. The few volumes in use were mostly the personal prop- erty of those who were using them. By August 31 nearly 400 bound volumes had been purchased (at an approximate cost of $2,800), consisting mainly of standard reference books, such as encyclopedias, dictionaries, gazetteers, atlases, and directories, quite a number of which were in foreign languages. In addition, a large number of REPORT or THE WAR TRADE BOARD. 221 American and foreign Government publications and special com- mercial reports and p'amphlets were secured, catalogued, and in- dexed. Maps to the value of approximately $250 were purchased and delivered to individual members of the organization. The num- ber of books and pamphlets added during the month of October showed an increase of nearly 300 per cent over those for September and continued to grow at a steady rate. The personnel of the library increased from one clerk to six. Their duties were principally to give personal service to those call- ing at the library, numbering sometimes 100 a day, replying to tele- phone inquiries, and listing and indexing new publications. The library was also called upon to furnish service to the War Industries Board, the United States Shipping Board, the Food Administration, the Alien Property Custodian, the Military Intelligence Division of the War Department, and other war agencies. Another function of the library was to route current magazines regularly to the staff of the entire Board, as well as to indicate where any desired informa- tion might be found in other libraries. (2) The • Clip'ping Service read, clipped, and indexed 40 daily newspapers, distributed 31 others daily to trade specialists, and routed clippings regularly to 60 interested readers in and out of the War Trade Board organization. For the month of November, 1918, for instance, these clippings totaled 4,563. The work of the clipping section increased on account of the demands from the War Trade Board organization and also from outside Government organizations. (3) Translation. — The translation section, with a staff of seven translators, handling all the principal modern European languages, served all the bureaus of the Board in the tianslation of correspond- ence from foreign countries, in dealing with enemy prisoners' letters, and with mail submitted by the censorship of economic interest, and in the translation for presentation to the Board of many important communications from the allied powers and their various economic agencies. Their work required the translators to go to the Library of Congress and to the library of the Department of Commerce to consult foreign sources, from which they made translations of abstracts used in the preparation of many country and commodity studies. In October this group handled 1,156 pages of translation from seven different languages. General Information Service. — This section afforded service of the following character: (1) Personal attention to specific requests; (2) examination of periodicals, pamphlets. Government documents, bills, etc., for data interesting to the organization; (3) telephone service for personnel location. The General Information Service was varied, covering editorial work and that of a general information bureau. It involved close contact with general sources of information as well as with rulings and regulations of the War Trade Board. Watch was kept on leg- islation and official publications, as well as the daily and weekly newspapers and special services. Whatever was thought of mterest to members of the War Trade Board organization was placed promptly in their possession. A new special service to exporters was under preparation, but was abandoned when the armistice was signed. 999 ^^^ EEPOKT OF THE WAR TRADE BOARD. This section of the Division of Information answered during Oc- tober, 1918, several hundred telephone calls for information and sent out nearly 200 tyjjewritten special items of information on a wide variety of subjects to experts in the organization. During the latter part of 1918 it took up the work of preparing daily for the chairman and vice chairman of the Board a special digest of press news and opinion. It also took care of considerable correspondence. It kejit for a long time a classified conmiodity list with all the rulings thereon. It is imiDortant to state that at no time during its life was there put out through the Division of Information any publicity of a propaganda character. The work of the division has been strictly to make known to the public the rules and regulations of the War Trade Board. The signing of the armistice caused no immediate diminution in the work of the division. During Xovember, December, and Janu- ary there were approximately as many press releases as during all the previous life of the Board. The removal of restrictions on trade necessitated much publicity, so that it was not until several months after the armistice that calls upon the division began to become less ui'gent. The addition of the Price-Fixing and Industrial Sections of the War Industries Board to the War Trade Board organization also accounted in part for this. In January the War Trade Board NeAvs was discontinued, and in March the Daily Digest. By the end of the latter month the force had been reduced to a personnel of 18 and by the end of May to 15. THE BUREAU OF BRANCHES AND CUSTOMS. ESTABLISPIMENT. The Bureau of Branches and Customs was created on February 6, 1918, by the following vote of the War Trade Board : The present Division of Branclies and Customs shall become the Bureau of Branches and Customs of the War Trade Board, and as such shall have juris- diction over, and management of, all branches, cooperative offices and repre- sentatives of the War Trade Board in possessions of the United States; and be responsible to the Board for the transmission to the branches of all rulings of the Board, or rulings of the committees and bureaus of the Board, which may affect the branches or be necessary for them to have for their successful operation. It shall also be responsilile for transmission to the Customs Division of the Treasury Department of all rulings of the War Trade Board, its Imreaus or committees, which are necessary and proper for the Customs to receive to effectively police and check exports and imports. The director of tliis bureau will be appointed by the A\'ar Trade Board. All nominations of branch office managers will be subject to the approval of the War Trade Board before appointment. Prerious to the passage of this vote the administrative control of the branch offices of the Board rested with the Division of Branches and Customs of the Bureau of Exports, but each bureau appointed its own representatives in these offices and issued its own instructions to them and to the Customs Division of the Treasury Department. It was in order to do away with duplication of effort and properly to coordinate and direct the work of the branch offices and collectors of customs through a single bureau that the Bureau of Branches and Customs was established. During the first two months of the year new branch offices were established at Detroit, Mich. ; Eagle Pass, Tex. ; El Paso, Tex. ; Laredo, Te.x., and Nogales, Ariz., and the branch offices at Boston, Mass. ; Chicago, 111., and St. Louis, Mo., were moved from the offices of the Bureau of Foreign and Domestic Commerce of the Depart- ment of Commerce to new quarters, and were placed under the charge of special agents of the War Trade Board. During October a branch office was opened in Cincinnati for the exclusive use of the Bureau of War Trade Intelligence. Two cooperative offices were established, one at Minneapolis, Minn., on May 11, 1918, and the other at Cleve- land, Ohio, on October 18, 1918. These two offices were created to act as information bureaus and were given no fuither authority. There were on December 31, 1918, 26 general branch offices of the War Trade Board, located in the following places : Boston, Mass. Laredo, Tex. Chicago, 111. Los Angeles, Calif. Detroit, Mich. Mobile, Ala. Eagle Pass, Tex. New Orleans, La. El Paso, Tex. New York, N. Y. Galveston, Tex. Nogales, Ariz. 223 224 KEPOET OF THE WAE TRADE BOARD. Philadelphia, Pa. Guam. Portland, Oreg. Honolulu, Hawaii. ■ St. Louis, Mo. Juneau, Alaska. San Francisco, Calif. Manila, Philippine Islands. Savannah, 6a. St. Thomas, Virgin Islands. Seattle, Wash. San Juan, Porto Rico. Balboa Heights, Canal Zone. Tutuila. At the time of its creation tlie Bureau of Branches and Customs started with 272 employees, but its work grew so rapidly that by August 1, 1918, the number increased to <±69, and by December 1 to 516. During December the number began slowly to decrease, but this decrease was checked in the early part of 1919 because of the increased authority given to branch offices. Beginning with March 1, 1919, the closing of the branch offices rap)idly reduced the number of employees to only the few in the Washington office necessary to attend to the final details in closing up this bureau, seven persons being transferred to the State Department on July 1, 1919, for the purpose of completing this liquidation. AVORK DONE THROUGH BRANCH OFFICES. The branch offices of the War Trade Board performed a dual work: (1) They advised exporters and importers throughout the country how to proceed under the many rules of the Board, furnished them with the proper application forms, and instructed them how to fill them out, etc. ; and (2) they did a part of the routine work in recording and writing many of the licenses issued. As sources of information for the public the branch offices were of great value. They brought the War Trade Board to exporters and importers living in all parts of the country and enabled them to obtain quick information as to the regulations of the Board, thus saving lengthy correspondence oi' the expense of a trip to Washing- ton. In emergency cases, such as Avhere the prompt sailing of a vessel was involved, or where the shipment was important for war reasons, or where an exporter's order was apt to be canceled unless quick action were taken on his application, the branch offices ex- pedited the issue of the necessary license by getting in touch with the Washington office by telegraph or by telephone. In this way they assisted materially in lessening the burden which a system of export and import licensing necessarily placed upon the public. In addition to handling telegrams to and from branch offices, the Bureau of Branches and Customs in Washington, at the request of the Bureau of Exports, handled all the telegrams of the latter. A total of 41,732 telegrams were received and a total of 38,903 telegrams were sent by the Bureau of Branches and Customs in Washington be- tween February 6 and December 31, 1918. A large proportion of the routine work of the Bureau of Exports during the year 1918 was done by the branch offices. Export appli- cations were received by them, carded, and, in most instances, for- warded to Washington, where they were passed upon and returned to the branch offices which then issued the licenses or the refusals. Applications for articles not on the export conservation list were acted upon by branch offices without reference to Washington, when such articles were destined to certain countries, but applications for Ss T ill ¥ XX X XX '-^ 03 o» 20 5! TTT I S 5 i 3 5' |33"° J-, on -1 c -1 c rn c: > rS en —\ 5 2 3 > > 'B z 2: 1 rH s > r 8 H 3 2 S + S ^ ■7 < •n i pa r- 1 s g < (Hi > I 1 i n -n :z 3» 2 2 1 -< i f H 5 m -< — 1 1 1 1 L— ' — 1 1 — 1 I— i 1 1 LJ ' ' L-1 ' — ' 1 — 1 a li^ C" ^ si ~n z: :a= —1 :s 2: n ;^ —1 :3* -4 ?o ■z. c: SI 3- '^ Z < =3 ■-^E? —1 » 9 !i'? ?3 H C3 ;=o .J D S O ?3 D3 en. cr CD M 2: ::3> c^ =c >J 00 -^ >. e_j "T^ d C— ^ — ^ c^ g a i a z > 11 n c 3 3 " r:oo>^(- I o Hm •0 c >- Co fes 51^ 05 5> H 13- CnCA g r ^ ./,/ T 1 REPORT OF THE WAR TRADE BOARD. 225 articles on the export conservation list had to be referred to Washing- ton to be passed on by trade advisers, and in some instances also by (he country distributors. Applications for e^•ery commodity, Avhether on the export conservation list or not, had to be referred to Washing- ton when destined to a neutral country, in order that they might be passed on by the Bureau of War Trade Intelligence. The following table shows the numbers of export applications handled by the bi'anch offices in continental United States during the year 1918 : Boston Chicago Detroit Eagle Pass El Paso Galveston Laredo Los Angeles _ Mobile New Orleans- 61 164 109 552 10 421 4, 112 9. 032 3 754 5 346 23, 317 4,924 69, 909 1 New York Nogales Philadelphia __ Portland St. Louis San Francisco- Savannah Seattle , 028, 279 6,116 34, 229 1,482 20, 149 89, 176 1,165 8,884 Total 1, 491, Oil The total number of export applications handled by the Bureau of Exports in Washington, which did not come from branch offices, was 884,237. Thus a very large percentage of the export applications to the Bureau of Exports was handled by the branch offices during the year. During the year 1919, owing to the reduction of the conservation list and other relaxations in export control resulting from the signing of the armistice, it became feasible to delegate to branch offices a broader authority to pass upon applications for export licenses with- out referring the applications to Washington. One of the important features of the procedure developed was a card catalogue of persons and concerns whom the Bureau of War Trade Intelligence had found objectionable from an enemy trading point of view. Branch offices were supplied with either a complete file of these cards, or only such portion of them as would be generally serviceable to the particular branch office, depending upon the usual destinations covered by appli- cations filed with that branch office. These cards, supplemented by definite instructions regarding commodities and countries of destina- tion, enabled the branch offices either to grant or to refuse, without reference to Washington, a very much greater percentage of the export applications. Although it Avas not possible to put this proce- dure into effect until February 1, 1919, by the end of February branch offices were passing upon approximately 75 per cent of the applica- tions requiring individual export licenses without the necessity of reference to Washington, and subsequently this percentage was very materially increased as further relaxations in export control were made, reaching almost 90 per cent in some branch offices. As the procedure in cases so passed upon by branch offices made a saying of from two days to nearly two weeks in the time between filing an application and receiving the notice of the action taken thereon, its importance to the exporting and shipping public is quite obvious. The system of handling import applications in branch offices was different from that for export licenses. They were viseed by branch offices to see that they were in proper form and that they contained all necessary information, and were then forwarded to Washington, 103584—20 16 226 RBPOKT OF THE WAE TRADE BOARD. where they were passed upon and where the actual licenses were issued. A great deal of work was done for the Bureau of Transportation by the branch offices located on the seaboard, particularly those at New York, Norfolk, New Orleans, San Francisco, and Seattle. At any port where a branch office was located the licensing of bunkers and ship stores was done by the branch. The office at Norfolk con- fined its activities to Bureau of Transportation work. The branch offices also did considerable investigating for the Bureau of War Trade Intelligence. This was particularly so at the New York office, where a large force did nothing else. In performing this large vol- ume of work for the various bureaus mentioned, the branch offices not only relieved these bureaus of a considerable portion of their work but, by reason of their proximity to the trade, materially assisted in accelerating it. Nearly three-fifths of the personnel of the bureau was located in the New York branch office. Over 60 per cent of the export and im- port applications submitted to the War Trade Board originated in New York, and for this reason it was necessary to keep a large force in that city. The daily number of callers at the New York office rarely fell below 500, and occasionally it exceeded 1,200. The volume of work made it economical to install private telephone and telegraph connections between the New York branch office and the Washington office. While the daily number of telegrams to New Orleans war- ranted it a private telegraph wire between the New Orleans branch office and the Washington office was maintained. In March, 1918, a five-day conference of the special agents was held in Washington and a series of talks on different phases of War Trade Board work was given by men connected with its various bureaus in Washington. Thereafter during the year representatives from the branch offices were brought to Washington as often as it seemed de- sirable and placed in touch with the various trade and country ad- visers of the Bureaus of Exports and Imports in order that they might be kept thoroughly informed as to the policies of these advisers and be in a position to keep the public advised as to them. WOEK DO?s'E THROUGH OTHER DEPARTjMENTS OF THE GOVEENJtENT. In addition to managing the branch offices, the Bureau of Branches and Customs was charged with the duty of transmitting the rulings of the War Trade Board to the Customs Division of the Treasury Department, the Post Office Department, and the Eailroad Admin- istration, all three of which -^voluntarily assisted the War Trade Board in its work. Without the assistance of these bodies the War Trade Board could not have enforced its decrees. The work done by collectors of customs for the War Trade Board was particularly important. They checked up all exports and im- ports that passed through their hands with the licenses issued by the War Trade Board, and saw that nothing left or entered the country in violation of its rules. Too great praise can not be given them for the valuable assistance they rendered the War Trade Board in this respect. The supendsion of this vitally important work, in so far as exports were concerned, brought the Bureau of Branches and Customs in close contact, not only with the Customs REPORT OF THE WAR TRADE BOARD. 227 Division of the Treasury Department, but also with the individual collectors at the more important ports throughout the country. In conjunction with the Customs Division of the Treasury De- partment the Bureau of Branches and Customs worked out numer- ous arrangements for the inspection of certain goods and licenses at points other than ports of exit, thus enabling the War Trade Board to obtain earlj' information as to attempts to evade its regu- lations and enabling shippers to dispatch licensed goods promptly. In conjunction with the collectors of customs along the Mexican and Canadian borders, a system of frontier retail traffic was devised under which the Mexican and Canadian populations living near the border were permitted to purchase foodstuffs and other articles necessary for their subsistence from the retail stores on the American side. With Mexico this was a highly important factor, inasmuch as the Mexican population living near the border was dependent to a large degree upon what they could purchase on this side of the line. The Bureau of Branches and Customs also supervised expoi'ts by mail. Through the Post Office Department it kept the postmasters throughout the country advised as to the rules of the War Trade Board regarding postal shipments, and it was charged with the duty of answering the thousands of letters from postmasters and indi- viduals asking for information in regard to such shipments. A similar duty was placed upon the btireau in connection with the Railroad Administration. In order to avoid congestion at seaboard and along the Canadian border the Eailroad Administration made every effort not to ac ept export freight at interior points unless the exportation was licensed by the War Trade Board. This necessitated keeping the Eailroad Administration informed up to the minute as to many War Trade Board regulations. Owing to the loss of papers and other unavoidable causes some congestion occurred alo^.g the Cana- dian border, and a system of clearing freight held up at the border ports for lack of export license was evolved In- the Bureau of Branches and Customs in conjunction with the Eailroad Administra- tion, tlie Customs Di\isi(in of the Treasury Department, and the De- partment of Commerce. Tender this svstem tlie Bureau of Branches and Customs received immediate notice of all cars so held and ar- ranged for their qiiick clearance as far the War Tra-ie Board was concerned. Approximately -2.000 cars were cleared under this ar- rangement within 24 hours of their arrival. T^ntil this system was put into operation such cars were seldom cleared in less thini 1<) days, and it frequently took considerably longer. Comino- in contact as it did with these other departments of the Government, the Division of Customs and Postal Eegulations of the bureau was frequently called upon to devise new procedure m connection with the control of exports. Among the new procedures so devised were : ^ , . , , (1) "Procedure for filing shippers export declarations and export hcenses with collectors of customs," which procedure was pre- scribed jointly by the Treasury Department, Department of Com- merce and the War Trade Board, and was placed m operation with the approval and assistance of the Department of State. A new form of shipper's export declaration was designed to comply with the trading with the enemy act. -C 228 REPORT OF THE WAR TRADE BOARD. (2) Ee vised partial-shipment procedure, which dispensed with the system of using a separate document certified to before a notary public as a partial-shipment certificate and in place thereof provided for the use of the shipper's export declaration as a partial-shipment authority in itself. The Post Office Department cooperated with the War Trade Board in this revised procedure and appointed all postmasters of first and second class offices, about 3,000 in number, to act as agents for the War Trade Board in certifying to partial shipments against export licenses. (3) Preparing circulars for adoption by the Eailroad Adminis- tration outlining the regulations of the War Trade Board for the guidance of local freight agents in accepting freight for export. (4) " Kevised regulations governing the exportation of merchan- dise by mail," a procedure for more effectively controlling the ex- loortation of merchandise through the mails. This procedure and the forms to be used thei'ewith received the approval of the Post Office Department, the Censorship Committee, and Department of Commerce, but was recalled from the Public Printer and its opera- tion postponed when the armistice was signed. (5) " Revised regulations governing in-transit shipments" and forms to be used therewith, which received the approval of the Treasury Department, the Railroad Administration, and the De- partment of State. This procedure was designed to control in-tran- sit shipments at the point of origin, but as the armistice was signed about the time it was to be placed in effect, its operation was post- poned. (6) A special blanket license covering the exportation of printed matter by mail to all countries, which license was issued based on arrangements made with the Postal Censorship Committee whereby the censorship of printed matter and all investigation relative to the propriety of allowing same to leaxe the country was assumed by that committee. (7) Early in the year 1919 there was delegated to this bureau the duty of drafting new special blanket export licenses (RAG licenses), or of amending existing ones, as rapidly as changed con- ditions made it possible to do so. In order to see that the various branch offices and collectors of customs were kept fully advised as to the regukitions and policies of the War Trade Boai-d, a traveling representative was maintained, whose sole duty was to visit the various parts of the country and inspect the work that was being clone for the Board. On account of their detailed familiarity with the policies ana regu- lations of the Board, three members of the Washington office of this bureau were ordered to Paris, P'rance, as special assistants to the chairman of the War Trade Board. CLOSING THE BEAXCII OFFICKS. The drastic reductions in the export conservation list, the pro- nounced extension of the scope of the series of special exports licenses (RAC licenses), and the withdrawal of the enemy trading lists had brought about such a freedom from control of foreign com- merce that various branch offices rapidly ceased to be of any material EEPOET OF THE WAR TRADE BOARD. 229 benefit to theiv respecti\-e districts. Therefore, the branch oflice at Portland, Oreg., ^Yas converted on March 1, 1910, from a reguhir branch to a cooperative office, and the branch office at Sa\'annah, Ga., vFas discontinued on Marcli 15, 191'.). The issuance of April 4, 1919, of an RAC license reducing the control on shipments to jNlexico made possible the closing on April 15, 1919, of the branch offices at El Paso, Eagle Pass, Galveston, and Laredo in Texas and Xogales in Arizona. The branch office at Mobile, Ala., was also closed on the same date. In consequence of further extension of special export licenses the branch offices at Boston, ]\Iass. ; Detroit, Mich. ; Los Angeles, Calif. ; Philadelphia, Pa.; St. Louis, Mo., and Seattle, Wash., and the coop- erative offices at Cleveland, Ohio; Minneapolis, Minn., and Portland, Oreg., were closed on May 1, 1919, leaving the four largest offices at New York, N. Y. ; Chicago, 111. ; New Orleans, La., and San Fran- cisco, Calif., which were closed on May 15, 1919. Although the New York office ceased to function as a branch office, the Bureaus of Ex- ports and Imports and Transportation each retained a representa- tive there until July 31, 1919, for information purposes. This left merel}^ the branch offices in the " outports," namely, San Juan, Porto Eico ; Juneau, Alaska ; Guam ; Manila, Philippine Islands ; St. Thomas, Virgin Islands; Honolulu, Hawaii; Tutuila; and the Panama Canal Zone, the duties of which as War Trade Board agencies gradually diminished as the War Trade Board ceased to function. Because of the functions of this bureau in obtaining the coopera- tion of the Division of Customs of the Treasury Department and of the Post Office Department in matters of export control, and because of the necessity of comiDleting certain administrative matters per- taining to the bureau, the Washington office of the Bureau of Branches and Customs was continued as such until June 30, 1919, when the remaining i^ersonnel was transferred to the Department of State. III. AGENCIES OF INVESTIGATION AND RESEARCH. THE BUREAU OF RESEARCH AND STATISTICS. THE TWO DIVISIONS OF THE WORK. Since the beginning of export control the statistical work done in the War Trade Board has been of two distinct types — that of research and investigation, and that of keeping and tabulating the records of licenses and of current exports and imports. For the first two months the two functions were fulfilled by the section of War Trade Statistics of the Division of Export Licenses. Under the Exports Adniinistrati\ (' Board, the Division of Researcli of tlie Bureau of Export Licenses had both tj'pes of work in charge, though a subsection was detailed to the tabulating of licenses. When the War Trade Board was organized, the two functions were fulfilled by two bureaus — the Bureau of Eesearch and the Bureau of Tabu- lation and Statistics. These existed as separate bureaus until Novem- ber, 1918, when they were combined into the Bureau of Eesearch and Statistics, with a Division of Eesearch and a Division of Tabulation and Statistics. Since the type of work, the functions, and the problems of organi- zation of these two divisions were distinct, and since during more than one year they were two separate bureaus, they will be treated separately. THE DIVISION or RESEARCH. THE OKIGIN AND FUNCTIONS OF THE BUREAU OF EESEAKCH. The need for a growp of research men. — The need for trained men to analyze the statistics of exports and imports of this country and of other countries was recognized as soon as the problems of export policy were considered. The subcommittee on export licenses in- cluded in its recommendations that there should be " a War Trade Statistical Division to arrange and interpret statistical material which is already available in the Bureau of Foreign and Domestic Conmicree." This section was organized as a jiart of the Division of Export Licenses of the Bureau of Foreign and Domestic Commerce, begmnmg active work about July 10, 1917. The staff of the section consisted of ten experienced economists and statisticians. The first Investigations. — This small group began working at once upon investigations bearing on various problems. Our ex- ports to the northern neutrals, their imports from other countries, and our supplies of commodities which we had licen exporting to them were studied; investigations on commodities to be conserved, such as mnieral oils and foodstuffs, were made; a study was made of coal and coke, with si)ecial reference to bunker allowances. An 230 REPORT OF THE WAR TRADE BOARD. 231 analysis ^Yas made of the tonnage of Swedish, Norwegian, Danish, Dutch, and Spanish vessels clearing United States ports. The evolution of the huTeau. — The functions of this statistical research group became more clearly defined in August, when, under the Exports Administrative Board the War Trade Statistical Sec- tion became the Division of Research of the Bureau of Exports. The work then became more clearly divided into two fields — studies of commodities and studies of the trade of foreign countries. A staff of 10 research men and 25 clerks carried on the work. A separate Division of Transportation took over questions regarding shipping and ships' bunkers. When the AVar Trade Board was organ- ized in October, 1917, the Division of Research became the Bureau of Research. The functions. — One of the outstanding facts throughout the war has been the great importance of essential commodities, the control of which was in itself a power of prime importance in the prosecu- tion of war. In order to use to the best advantage the power result- ing from control of rich resources of many necessary materials, statistical information was essential to the War Trade Board. Not only this, but it was often needed on short notice and frequently required a considerable amount of labor, technical knowledge, and statistical experience. The place of the research group, made up of men familiar with particular commodities or countries who could give their full time to the study of these problems, was an important one in the efficient prosecution of the war trade policy. The functions of the Bureau of Research may be outlined as follows : (1) To investigate and answer requests for information sub- mitted by the members and officials of the War Trade Board and other Government organizations. (2) To keep at hand and in a form easily available information regarding questions constantly before the War Trade Board. . . (3) To initiate investigations in order to anticipate inquiries and in order to prepare reports which would prove val- uable to the War Trade Board and other war agencies. It is attempted in the foUoAving pages to show by some examples the various ways in which the Bureau of Research contributed to the work of the War Trade Board by supplying statistical and economic information. THr; v.viiious kinds of wokk. The early work on the export conserration list.—T'hQ domestic conservation program was necessarily determined largely by the Food Administration, the Fuel Administration, and the War Indus- tries Board, and administered by the trade advisers m the Bureau of Exports. The Bureau of Research contributed to the formation of the list through supplying statistical data to these agencies when spe- cific questions were asked. Besides this, however, the Bureau of Re- search made several investigations in the early days of export con- trol before the War Industries Board was functioning which were influential in placing on the conservation list one or two commodi- ties and in the formulation of a definite export policy m the case ot 232 REPORT OF THE WAR TRADE BOARD. others. Significant among these was a report on the canned milk situation, made in September, 1917, pointing out the great increase in our exports of canned millc to countries not vitally connected with the war as well as to the Allies, and our consequent greatly increased consumption of tin plate. This report was influential not only in bringing about the restrictions on the exportation of tin plate, but in the later efforts by the War Industries Board to conserve the use of tin plate for food containers. In December the seriousness of the tin situation became more acute, and a great deal of study was devoted to this subject. Valuable information was furnished the Board and the Bureau of Exports by the Bureau of Research. The work in- volved the sending out of questionnaires, the determination of the requirements of meat-packing concerns in South America which were furnishing supplies to the Allies, and the estimation of possible sup- plies available from the Straits Settlements, Bolivia, and the Dutch East Indies. Information as to decreased imports of tin from the Dutch East Indies in the early months of 1918 was furnished, to- gether with other statistical data and information essential to the Board in negotiations with the Dutch Government for obtaining a greater supply of this essential commodity. Tin was one of the nu- merous commodities on which much information was supplied vital to the efficient work of the Board. Another subject which received a great deal of study in the early days was mineral oils. A report was made in August, 1917, showing in detailed tables our greatly increased exports and pointing out the shortage which would result if restrictions were not put on the exportation of this commodity. The tables showed details of the trade, production, and consumption of the various kinds of mineral oils and were valuable in the determination of a policy of con- servation. In December, 1917, at the request of the Bureau of Exports, a thorough investigation of the chemical situation was made, to be used as a basis for a definite policy. As the commodity list grew, statistical information essential in the formulation of the conservation program on specific commodities was called for by various trade advisers and trade distributors. The ratiomng of Latin America. — Many countries of Latin Amer- ica had become increasingly dependent during the war on the United States for coal, iron, certain foodstuffs, and other essential com- modities. Although the problem of rationing Latin America with foodstuffs was studied by the Bureau of Eesearch in some detail in the late fall of 1917, and the results of this study were furnished to the Board, the food program was determined by the Food Admin- istration and carried out through the trade adviser on foodstuffs in the Bureau of Exports. From that time the Bureau of Research did no further work on this problem except to answer specific ques- tions and supply some statistical data. The determining of rations for commodities other than foodstuffs, such as coal and iron, was done by the Fuel Administration and the War Industries Board, and allocation was administered by the trade advisers in the Bureau of Exports, who were furnished with statistical data from the Bureau of Eesearch. The investigations on which were based the Board's policy regard- ing import restrictions were not carried on by the Bureau of Re- REPORT OF THE WAR TRADE BOARD. 233 search. The working out of the import program was the function of the Division of PLanning and Statistics of the Sliipping Board, which was organized for tliis purpose. Sliipptng preference lists to South A7nerica. — Tlie scarcity of sliipping for exports to the east coast of South America, whiclr be- came pressing in the early spring of 1918, necessitated a plan for properly allocating the limited shipping space to exports essential to those countries. The planning of a method for so allocating space was done by the Bureau of Eescarch in cooperation with the Bureau of Exports. The export preference plan, which was finally adopted in November, 1918, involved the rating of all commodities in four classes. There was necessary a considerable amount of study of the trade, industries, and needs of the countries involved, with special reference to the industries in these countries which were contributing essential war supplies to the United States and the Allied Governments. The plan necessitated classification of all ex- ports to the east coast of South Ameiica into four classes. Licenses were rated according to these classes with a shipping preference num- ber I, II, III, or IV and were shipped from the docks in the order of priority indicated by this rating. It was the work of the Bureau of Eesearch to classify the numerous commodities for each country into these four groups. Detailed lists for each country were drawn up, in which export commodities were classified according to four considerations : First, those needed by industries furnishing war supplies to the Allies; second, those essential to the economic life of the countrv; third, those whose export would help our rate of exchange ; and, fourth, other important customary exports. Negotiating with neutrals. — The formation of the war trade policy was necessarily one which was based to a considerable extent upon diplomatic as well as upon economic and military considerations. Owing to the nature of the situation, the Board worked in close co- operation with the Allied Governments, .basing the policy of the United States largely upon the experience and the policy of Great Britain and France. For these reasons the nature of the problems of the embargo against the northern neutrals were such that the primary outlining of rations for these countries was necessarily more advisedly done by the War Trade Statistical Division of the Allied Blockade Committee in London than by a statistical organi- zation in Washington. Although extensive work on this subject was done by the Division of Eesearch and rations were outlined for each of the northern neutral countries, probably the most valuable statistical work done in the early days was in answering specific questions and supplying statistical data to the Exports Council or the War Trade Board when information was needed. Many tables of exports and imports were furnished, and numerous special investi- gations were made. A few examples will show the nature of the information given from time to time. An investigation was made in November, 1917, of the exports of iron ore from Sweden to Ger- many and the importance of these supplies to the Central Powers. A report on the exports of fish from Norway to Germany was made. A report was requested in March, 1918, on the Danish rubber situ- ation, and one on the Danish shipbuilding program for 1918. Such requests were numerous through the winter and spring of 1918, but 234 REPORT OF THE WAR TRADE BOARD. SO far as the Norwegian, Swedish, and Danish agreements were con- cerned, pi'actically no comprehensive studies were made outlining a polic}'. The same may be said of the work done for the Spanish agreement, signed March 7, 1918, and the first Swiss agreement, signed on December 5, 1917. On the other hand, the work done by the Bureau of Research in connection with the Dutch agreement, which was signed in November, 1918, was of a more compreliensive nature. The details of the ration- ing plans were drawn up by the group working especially on Hol- land. These rations were based on an intensive study of the situa- tion, and were adopted substantiallj' as recommended to the Board. The work of the Bureau of Research in connection with the second Swiss agreement was even closer to the actual determination of policy. Over a month before the date when the Swiss agreement was to expire an intensive study of the SavIss situation was begun. On September 17 the agreement was extended for one month, and it was not until November that the first meetings were held with Swiss representatives. During these two months nine research men carried on this investigation into the Swiss situation, considering her needs aircl the commodities which she could supplj' to the American Expe- ditionary Forces. The Swiss requirements of each essential com- moditj', trade agreements between Switzerland and other countries, shipping conditions, and other phases of the problem were examined. In September a memorandum on the general situation was prepared for the members of the Board, outlining the information at hand on each phase of the negotiations. When the meetings with the Swiss representatives were held in December, the man in charge of these investigations attended as economic adviser. The advantages of this thorough preliminary investigation of the situation and of hav- ing the advice of the man who had all the facts at hand proved sig- nificant during the course of the negotiations. The signing of the armistice changed the outcome of the negotiations, making possible more lenient rations and in part removing the need for supplies from Switzerland for the American Expeditionary Forces. The Bureau of Research was called upon for information in cases where the War Trade Board was negotiating for essential supplies where formal agreements specifying rations were not involved. An example is in the case of the arrangements made for the purchase of mules in Spain for the American Expeditionary Forces. The American Expeditionary Forces were in need of a large number of horses and mules. It was decided in June, 1918, to purchase as many as possible in France, England, and Spain in order to save shipping tonnage. In July 35,000 Spanish horses and mules were purchased, to be delivered in France during the period July to Octo- ber. Before any appreciable number of these had been delivered the Spanish Government placed an embargo on the exportation of horses and mules, in this way cutting off further deliveries to the United States Army. Undoubtedly the Spanish Government realized the urgent need of these animals and calculated that by an embargo on their exportation supplies of much needed commodites coufd be obtained from the United States. Negotiations between the War Trade Board and the Spanish Government continued throughout the summer. In October the situation became urgent; the American Army in France was in need of horses and mules and Spain had put REPORT CP THE WAR TRADE BOARD. 235 her refusal to grant export permits for the animals that had been purchased on the grounds of a shortage. The success of the negotiations, then, apparently depended upon a deterniination of the facts. If the American representatives could show that a shortage of these animals did not exist, their position would be greatly strengthened. The representative of the War Trade Boai'd m Madrid cabled to Washington asking whether the Bureau of Research had any information with respect to the number of horses and mules needed for farming in Spain and quoting a Span- ish periodical stating that the present supply was largely in excess of the number in 1913. ^ The information which the Bureau of Research was able to fur- nish was cabled to Madrid. It pointed out the following three facts : (1) That Spain had 181,000 more horses and 287,000 more mules than the average number of the years 1913-1916 and that it was improbable that the requirements of these . animals for farming were so much in excess of those years. (-2) That a neutral country could increase exports of horses and mules enormously to meet war conditions, as evidenced by the fact that the United States had increased exports ■ of horses and mules more than twelvefolcl during the Boer War and, as a neutral in the first two yeai's of the present war, had increased exports to the allied coun- , ■ tries by nearly 20 times in the case of mules and nearly 10 times in the case of horses. (3) The number of mules and horses per capita in Spain had increased since 1916 and this number was greater than in France. These facts, though fragmentary, were probably valuable to our representatives as lines of argument in the negotiations which fol- lowed and which resulted in the issue by the Spanish Government on November 3 of permits for the exportation of 11,000 animals and a promise for permits covering the number contracted for in July, the United States in turn promising to issue licenses for the exporta- tion of a quantity of ammonium sulphate to Spain. Other examples could be cited where information was furnished by the Bureau of Research, such as in connection with the negotia- tion with Brazil for manganese in the early part of the year, and the cases mentioned above, of obtaining further supplies of tin and quinine from the Dutch East Indies. Country and commodity books. — In the early part of 1918 the Bureau of Research developed a set of country and commodity re- ports which were collected into two books and submitted to each member of the Board, to the Contraband Committee, and to the di- rector of each bureau. The purpose of these books was to give in a condensed form the significant facts and figures regarding the com- modities and the trade of countries which were of importance in the Avar program. The commodity book, for example, outlined civilian and military requirements, production, stocks on hand, of about 60 important commodities, together with other facts which might be significant. The country book outlined briefly the political, financial, and military situation and gave figures of imports, exports, production, and consumption of a dozen countries. These books 236 REPORT OF THE WAR TRADE BOARD. were constantly kept up to date by the addition and substitution of new pages when fresh information bearing on tlrese subjects was obtained. 'The compihxtion of this material in an orderly and con- densed form proved valuable as reference to members of the Board and to some of the directors. These books were kept up to date until the latter part of the spring. After that time general country reports were made when- ever there was any particular need for a comprehensive picture of the trade situation in any country. For example, a survey of the trade with the Dutch East Indies was made when the embargo was placed upon tin by that colony. A study on the " economic situation of Japan " was completed in the fall. A study Avas made, also at this time, which was published and widely distributed, entitled "Export Trade Policy of the United Kingdom," showing the decline in Brit- ain's export trade during the war. Commodity studies were likewise made when occasion arose. Special requests for infoimation. — It has been emphasized above that the Bureau of Research contributed to the success of the war- program largely through the answering of specific requests. The listing of a few examples will best show the tj'pe of information furnished. A report was made showing phases of the commercial relations between Brazil and the United States which should be con- sidered in connection with the pending negotiations for a loan. A request was received for a brief statement of the production, con- sumption, and uses of ammonium sulphate in the United States, with especial reference to the amount which could be spared to Spain. Other examples follow : The supply of lubricating oil in Germany and her exports to Sweden, and an analysis of trade between the United States and Venezuela. In answer to a request from the Bureau of Exports, a report was made showing that the commodities being licensed to the Azores at that time were not likely to be of any assistance to the enemy either bj' being a^'ailable to submarines or as reexported to an enemy country. The following are further examples of requests for information from the Bureau of Exports: (a) Holland's imports from the Scandinavian countries: It is understood that about 50,000 tons of shipping is en- gaged in the trade between Holland and the Scandinavian countries. Just what is Holland receiving in this wav ? (&) Wood pulp: Determine whether there is a shortage of wood pulp at pres- ent, if we are importing wood pulp, and if so, in wliat amounts. Can we afford to export any of it? (r) Exports of dried prunes and peaches, from the beginning of 1913 to date, to various countries. This is for allocation; therefore, quantities to all countries possible must be ob- tained. {d) Dutch East Indies : How many Dutch troops are stationed in the Dutch East Indies? Are there any campaigns against natives under- way ? What is the normal import of automobiles into the Dutch East Indies? Approximately how many miles of REPORT OF THlE WAR TRADE BOARD. 237 automobile roads are there? What is the total number of automobiles in the islands at the present time? What public utilities are run hj the Government of the Dutch East Indies? Is the new work done by contract or by Government emiDloyees? Eeports were written and statistical data collected for agents of the War Trade Board in foreign countries to serve as guides and reference in their work. SfudJes for the Russian ^j/jvyv;/.— Especiallv interesting is the work done on Russia for the Board and for the Russian Bureau. In August. 191S, a report was made outlining food rations for the Murmansk region and giving suggestions as to the types of clothing and tools that should be sent. The information included was based upon dispatches to the Department of State, a report of the Murman railroad, and upon conferences with Mr. Vladimir Gorischkovsky, chief engineer of the IMurman railroad. The program of rationing the Murmansk district, outlined in this report, was carried out as recommended so far as was possible with the existing transportation difficulties. In September a report was made for the Board on the problem of economic relief to Czecho-Slovakia, outlining needs, available trans- portation facilities, and difficulties to be^overcome in carrying out a program of relief. A table showing a suggested three months' pro- gram of exports to Vladivostok was included in this report. In Octo- ber the War Trade Board of the United States Russian Bureau was incorporated. The corporation constantly called upon the Bureau of Research for further information regarding Siberia, such as : A brief statement of political changes which had occurred in Russia since the revolution. Dock facilities at Vladivostok. Cooperative associations in Siberia. Supplies of shoes and shoe machinery in Siberia. Desired imports from Eastern Asia. The possibility of our need for a quantity of alcohol available for shipment from Russia. Reports to other Grjvei-nvient ovfianhations. — At the request of the Fuel Administration reports on the coal sitiiatiping Board. — Since March, 1918, the Division of Tabula- tion and Statistics loaned to the Shipping Board the use of its ma- chines for sorting and tabulating punched cards showing vessel movements. These cards, which Avere punched before they came to this office, were retained for use in connection with any subsequent request for special tabulations. Lists of exporters and itnporters. — The machinery of trade control exercised by the War Trade Board had made it necessary for every person exporting or importing any kind of goods to file applications for licenses and to give details as to the quantity, value, and nature of the commodities and the name and address of the consignee. As a result, there existed in the files of the Bureau of Tabulation and Statistics and in the Bureaus of Exports and Imports the name and address of every exporter and importer doing business in the United States during the war, together with the names of their customers and the nature and amount of licenses granted to them. All this in- formation was available as filed, but no tabulation or compilation had been made bringing together all the licenses granted to any one firm. The value of this material was recognized by those departments of the Government which are interested in foreign trade, and re- quests for various tabulations were received from the Department of State, Shipping Board, the Department of Commerce, and the Bureau of Markets of the Department of Agriculture. The records of these departments were necessarily incomplete in this respect. Owing to the fact that the information so filed had been obtained by the War Trade Board under stress of war conditions the War Trade Board did not consider itself in a position to give out details regarding the quantity of business or the names of firms with which any particular exporter or importer had dealings. As a result, however, of requests from the Shipping Board and the Departments of State, AgTiculture, and Commerce, the War Trade Board autliorized the Division of Tabulation and Statistics to pre- pare two lists — the first to be a list of exporters and the second a list of importers " who had filed five or more applications for export or import licenses aggregating $5,000 or more in value." The first was compiled from cards filed in the Bui-eau of Exports during 1918, and included the following data : Xame and address of exporter. Principal commodities exported. Principal countries to which exported. This list included about 35,000 names. The list of importers was compiled from the Hollerith cards in the Bureau of Tabulation and Statistics from July 1 to December 31, 1918, and contained about 2,600 names, giving the following informa- tion about each: Name and address of impoi'ter. Principal commodities imported. Principal countries from which importing. KJi±-U±iX Ui? iHii WAK TKAUE BOARD. 261 A copy of each list Avas delivered to each of the departments named above, with the request that the lists be used only to complete their records, and that they should not be made public as compiled. It Avas thought that by supplying this information to the departments the AVar Trade Board was giving assistance to the further development of foreign trade and, at the same time, was giving out no information regarding any individual importer or exporter to which objection might be made. Individual firms would rather benefit by being upon the records of those departments of the Government conceined with foreign trade. PROCEDUEE. RECEIPT OF EXPORT AiND IMPORT DATA. {a) Export licenses and refnsals. — Export license duplicates, when receiA'ed, were assembled in bundles of convenient size, each with a " top sheet," M'hich routed its progress through the coding and punch- ing sections. Export refusal duplicates were filed as received. (h) Export declaratioiis — actual exports. — Shippers" export dec-- larations received from inland ports were made up into bundles, one' or more for each port and destination each day, while those reserved from water ports were bundled by ships. In either case each bundle received a top sheet indicating its routing. (c) Import licenses and refusals. — Import license duplicates and refusals were not received by the Division of Tabulation and Statis- tics. They were coded and punched by representatives of the Divi- sion of Tabulation and Statistics stationed in the office of the Bureau of Imports. {d) Import entries — actual imports. — The various forms of import entries which together showed actual imports — appraisement and in- formal entry, consumption entry, warehouse or rewarehouse entry, warehouse or transportation entry, and immediate transportation entry — were received and routed in the same manner as shippers' export declarations. The receipt and routing of the above documents comprised a part of the work of the clerical section. In order that the data on the various documents might be put upon a common basis, it was necessary to convert names into symbols and also to convert all measurements, weights, and customary units thereof into pounds. In case quantity was given and value omitted^ or vice versa, it was also necessary to derive the one from the other. This was the principal work of the coding section. As working guides, the coders were furnished four codes, covering, respectively, commodity, country, port (in case of imports only), and! applicant and consignor; also conversion tables which showed for- each commodity the value of a pound and the weight of a dollar's worth. Thus equipped, they were prepared to indicate on each document the data to be transferred to the cards used as the- basia of tabulation. 262 REPORT OF THE WAR TRADE BOARD. A further service of the coders, which was mentioned in an earlier section, was the examination of all documents showing actual exports or imports to determine whether there was evidence of any overship- ment and whether the various rulings of the War Trade Board had been complied with. Licenses were also examined to determine whether they had been issued in error. ' In the case of import licenses the coding was done by employees of this division assigned to the Bureau of Imports. In the case of ex- port licenses the original procedure required that the issuing office should code the commodity shown on the applications and that this division should verify the coding when the licenses came through. This was found to be practicable, however, only in the Washington and New York offices when employees of this division were detailed to do the work. The average number of documents per hour handled by the coders was as follows : Export licenses, 200 ; import licenses, 225 ; shipper's export declarations, 115 ; import entries, 40. PUNCHING. The data shown in the coded documents were punched on a 45-field Hollerith card by the punching section, the punching of import li- censes being done in the Bureau of Imports by employees of this section. All cards were punched in duplicate, one card by each of two operators, and checked by means of placing the cards together over a " light box," and determining whether the holes coincided. The number of cards punched per hour by each machine operator averaged about 175. FLLING OF CAKDS. The punched cards were filed by the tabulation section in two di- visions, one by commodity and the other by country. Coded docu- ments, after the data thereon had been transferred to the cards, were variously filed. Import license duplicates were filed by license num- bers in the Bureau of Imports. Export licenses were filed by license number, shipper's export declaration by ship under clearance port and date, import entries by entry port and date, and import refusals by application number. All these coded documents except the im- port license duplicates were filed by the filing section in the manner indicated above. TABULATING. In the making of tabulations, in many instances, the information desired could not be derived from the punched cards because it was impractical to code and punch more than the most important facts given on the license or the declaration of shipment. Machine tabu- lations were adequate to meet all requests for information as to com- modity, country, quantity, value, and number of licenses or ship- ments. The tabulating section, with 8 tabulating machines and 12 sorting machines, did this work. Requests involving name of con- signor or consignee, detail of destination, or detail of nature of commodity, etc., necessitated a hand tabulation from the original documents. In such cases the license numbers were obtained from BEPORT OF THE WAR TRADE BOARD. 263 the punched cards through use of the sorting machines, the documents were then withdrawn from the files and desired details were taken off and compiled by the clerical section. On the other hand, there were not a few requests for reports of a special nature which could be taken off from one or another of the four general tabulations. Such reports were made by the clerical section. VEKIFYING, EDITING, AND TYPING. All reports were verified and the responsibility for accuracy de- termined and recorded. The work sheets from the tabulating ma- chines were subjected to a detailed examination by the editing sec- tion before the typewriting was done, to determine the accuracy of the coding and all indications of possible error were followed back to the original documents. After reports had been typed they were carefully checked by the clerical section. In no case, except in the punching section, Avas work checked in the section in which it was done, and in the punching sections the verification was done by employees who had nothin_g to do with the original punching of the cards. FILING OF DOCUMENTS. (a) By the filing section.— Thid four principal files were kept by the fiUng section where the docimients which had been coded and punched were received dailv and filed as follows: Document. How filed. Average received daily.' Total num- ber filed by r-ec. 31, 1918. Export license duplicates Impoit license duplicates Original licenses 2 Export declarations Import entries Number File d in the Bureau ol Impoi ts. . By license number.- By port of sailing By port and date of entry 32, 000 11, 600 1,200 647,000 4,660,000 1 Average based on days prior to Nov. 11, 1918. 2 Filing of these documents discontinued after Nov. 11, 1S18. (&) By the clerical section. — Besides the work mentioned above of dealing with all incoming mail, the tabulating of smaller special re- ports from the regular complete reports, the making of all tabula- tions involving recourse to the original documents, and the keep- ing up of the book showing current trade and licenses granted by regions, the clerical section filed the following documents, and tabu- lated information from them upon request: Export applications refused. Bills of lading. Partial shipments. Ships' manifests. Eeports of EAC licenses. Cargo licenses. Cancellations of export licenses. Certain import entries. 264 REPORT OF THE WAR TRADE BOARD. The section also made the following reports from the documents received : Number of licenses issued. Xumber of refusals and cancellations issued. -x j ax + Number of steamers clearing from or touching at United btates ports. THE VOLUME OF THE WOEK. The number of reports issued by the division is indicated on pages 255 to 257. The work involved in issuing these reports con- sisted, first, in keeping the routine work of coding, punching, sorting, tabulating, and filing the licenses and declarations of actual ship- ments that came in every day, and, second, in taking off from the tabulations or from the cards the information desired in the re- ports. The first di-^dsion of the work, the routine of coding, punch- ing, sorting and filing, comprised more than half of the labor of the division. If this work was not kept up to date, it accumulatesd very rapidly. After the 1st of August the organization was run- ning smoothly and work was kept up to date. During the last months of the work an average of about 20,400 documents were re- ceived daily, coded, punched, and put through the sorting machines. After the signing of the armistice the number of reports issued gradually decreased, and the personnel occupied in issuing reports was proportionally reduced. With the relaxation of restrictions on exports and imports, however, the work of the sections doing the routine woik increased. Although the relaxation of restrictions re- duced the number of individual export and import licenses to he coded and punched daily because of the issuance of many blanket licenses, the relaxation of restrictions at the same time caused the number of actual shipments to increase very rapidly. The following table shows the increase in the routine work of the division from November, 1918, to March, 1919 : Average number of docuineiitfi received daily. In Novem- ber, 1918. In Match, 1919. Imrorl licences Export Inenscs Import entries E.xport declarations Total 400 8,000 2,000 10, 000 20,400 400 5,000 2,500 20.0(10 27, 900 On March 30, 1919, the Board decided to discontinue the tabulation of actual exports. As a I'esult of this the personnel was cut about in half. The tabulation of import entries was discontinued April 15, 1919, and of import and export licenses on May 10. The force was then reduced to five persons, who have issued several special reports upon requests from the Board and other governmental de- partments for tabulations of the material available in the files of the division. JKiaii-UKX OF THE WAR TRADE BOARD. 265 PERSONNEL. To carry on the work described in the foregoing pages the per- sonnel shown in the following fignres Avas found necessary : The section in charge of tabulating of tlie Itesearcli Division of tlie ISureau of Export Licenses, personnel : Aug. 27, 1917 '_ =o,, Bureau of Tabulation and Statistics, personnel ■ Oct. 15, 1917 7:; Jan. 1, 1918 1 ]iio Aug. 31, 1918 336 Nov. 11, 1918 _ OS3 Dec. 31, 1918 •>(;■> Feb. 1, 1919 IS'i ilar. 1. 1919 ]C,0 Apr. 5. 1919 S7 June 1, 1919 .5 July 1, 1919 3 On November 11 the personnel was divided as follows: Clerical section 22 Conversion section 8 Coding section 59 Punching and verifying section 87 Coding, verifying, and punching (on imports) 7 Tabulation section 27 Typing section 31 Filing section 34 Editorial section 3 Grand total 283 ' Approximately. THE BUREAU OF WAR TRADE INTELLIGENCE. CREATION OF THE BtrEEATJ OF WAR TRADE INTIiLLIGENCE. The need of an intelligence service to work in cooperation with the licensing authorities began with the establishment of the licensing policy. Following the passage of the espionage act on June 15, 1917, the President, by Executive order of June 22, created an Exports Council to formulate the policy of export control and placed the administration of that control with the Secretary of Commerce. The Division of Export Licenses that was at once established in the Bureau of Foreign and Domestic Commerce contained a War Trade Intelligence section with a cliief, assistant chief, 2 editors, and 19 other employees. With the creation of the Exports Administrative Board, effective August 27, 1917, the War Trade Intelligence sec- tion became a part of the organization of this board and so con- tinued until the establishment of the War Trade Board, when War Trade Intelligence became one of the bureaus of the Board. On May 12, 1919, the bureau was consolidated with the Bureau of Enemy Trade under the name of the latter. THE FUNCTIONS OF THE BUREAU OF WAR TRADE INTELUGENCE. The primary function of the Bureau of War Trade Intelligence was the determination of the enemj" or nonenemy status of persons or firms trading in, or with any person or firm in, the United States. From this there developed collateral functions of great importance. These may be listed as follows : (1) Passing on the character of the consignors or consignees named in import and export license applications. (2) Supplying the Bureau of Enemy Trade with information concerning applicants for license to trade with the enemy, and concerning the charater of the person with whom it was desired to trade. (3) Supplying various other departments of the Government, such as State, Justice, Military, and Naval Intelligence, Treasury (re enemy insurance companies). Shipping Board, Alien Property Custodian, etc., and various agencies of the Allied Governments with information passing through the Bureau of War Trade Intelligence which was of interest to them and which in all likelihood would not otherwise be obtained by them. THE BUREAU AS A WORKING ORGANIZATION. As a working unit of the War Trade Board the bureau was oper- ating at the end of 1918 under a director and three assistant direc- tors. One of the assistant directors worked with the director on 266 VAR TRADE BOARD CHAIRMAN BUREAU o'VAMRADE I NTELUGfNCE EXAMINING DIVISION FOREIGN COUIVTRIES UNITED STATK EXPORT IMPOPiT /ASSISTANT DIRECTOR NEW YORK OFEICE U5TING DIVISION ENEMY TfADinS I,I5T CONFIDEMTML 5U3Pfrr U5T CLOAKS LIST DIRECTOR /i55l5TA!\iT Oil^CTOR DIVISION OF CENSORSHIP AND CORRESFDNDENCf DIVISION "RtSEARCtl AND INVESTIGATION CENSORSHIP EttHINATIOS amuKmim SOURCES •' REPORTS DIGESTED '-CARDED BY THE BUREAU »" WAR TRADE INTELLIGENCE DEPARTMENT OF STATE SECRET SERVICE DIVISION TREA5UHY DEPARTNEWT MILITARY INTELLIGENCE DIVISION WAR DEPAF^TME^^■ OFFICE 0. NAVAL INTELLIGENCE . NAVV OEPARTMEMT DEPARTMCMT OF JUSTICE DEPARTMENT OF COMMERCE E BRITISH EHBASSY WA5H1MST0N BRITISH WAR TRADE IWTELL16ENCE DEPARTMENT ruENCH EMBASSY cable: censorship POSTAL CENSORSHIP ALIEN PROPERTY CUSTODIAM — TEXTILE ALLIANCE ^1— MISCELLANEOUS 10S58J— -on rr . -u. (Jo face page 266.; y\55l5TANT DIRECTOR OFFICE MANACEMENT PERSONNEL REPRESENTATIVE ON VI0UTION5 COHtllTTEE OF~WAR TRABf BOABB ENEMY PROPERTY , DIVISION EDITING ""CARDING DIVISION EDITING SECTION 5IEII0GWPI1IC SECTION OUfLICATINC SECTION ORGANIZATIONS •»■ WHICH ■<«= BUREAU »■ WAR TRADE INTELLIGENCE ACTS " "REPOSITORY—CLEARING HOUSE OF COMMERCIAL INFORMATION DEPARTMENT OF STATE: MILITARY INTCLUISENCE OIViSION WAR DEPARTMENT OFFICE <» NAVAL INTELLIGENCE NAVY DEPARTMENT DEPARTMENT OF COMMERCE — DEPARTMENT o- T»t INTERIOR — BRITI5H EMBASSY WAiHlUGTON FRENCH HIGH COMMISSION ITALIAN EMSA53V WASHINGTON FEDERAL RESERVE BOARD SHIPPING BOARD - FOOD ADMINISTRATION - FUEL AOMIN iSTP.ATION - WAR IMDUSTR1E& BOARD BUREAU OF WAft RISK INSURANCE COMMITTEE ON PUBLIC | INFORMATION | - CABLE CENSORSHIP POSTAL CENSORSHIP ALIEN PROPERTY CUSTODIAN L Cn'HER BUREAUS OF THE WAR TRADE BOARD m i..» T m • REPORT OP THE WAR TRADE BOARD. 267 the problems and policies that arose from the functions of the bureau ; the second represented the director in matters touching upon office management and personnel; while the third was in charge of the New York office. All larger matters of policy reached the director or one of the assistant directors. For the more effective handling of its work the bureau was organ- ized as follows : (1) Editing and Carding Division. (2) Examining Division. (3) Eesearch and Investigation Division. (4) Censorship and Correspondence Division. (5) Enemy Property Division. (6) Listing Division. (Y) New York office. EDITING AND CAEDING DIVISION. The basis of all work of the bureau was the information that it collected and put into easily available form. Such information typically came to the bureau in the form of letters and reports. These letters and reports, together with routine incoming correspond- ence, went first to the file room, where they were classified accord- ing to a modified Dewey library system, routed to the members of the bureau who should see them, and recorded. At the end of August the file room was handling about 1,100 new papers a day, including intrabureau memoranda and copies of outgoing letters. Of these, about 800 came from outside the bureau. Approximately one-half of these papers from the outside contained information that needed to be recorded for the future use of the bureau. Such papers, after being acted upon, went to the Editing and Carding Division. The function of this division was to make available in usable form the mass of information that came into the bureau. The papers coming to the editorial room were distributed among the editors on the basis of countries reported upon. One editor, for example, received all papers dealing chiefly with Mexico; another, all papers dealing with Argentina, Chile, Uruguay, and Paraguay. The editor read through the report, picked out its salient points, and dictated to a stenographer a brief but definite statement of the facts revealed regarding each person or firm reported upon. Distribution of cards. — These digests were printed by hectograph process upon 6 by 8 inch cards. Owing to the great demand that was made upon the bureau for information contained in its files, sets of these cards were distributed as follows : Postal Censorship : 7 complete sets and 4 partial sets. Military Intelligence Division: 1 set. Office of Naval Intelligence: 1 set. Chief cable censor: 1 set. New York office, Bureau of War Trade Intelligence : 1 set. (Master sheet set stored in Treasury Department.) While the cards proved a very effective method of handling the mass of information received by the bureau, in some cases they became so voluminous as to be unwieldy. Moreover, certain other agencies of the Government had such urgent need of the complete records of the bureau that in July, 1918, the plan of reediting the 268 EEPORT OF THE WAR TRADE BOARD. cards was begun. This plan permitted the elimination of duplicate information and the bringing together of scattered items. The re- edited cards were reproduced by hectograph process and complete sets made available to the same" agencies as had been receiving the other cards. In December a decrease in the volume of original edi- torial work made possible the transfer of a nimiber of editors to the reediting work. Plans were then laid to reedit all the material in the files, giving attention first to South and Central American countries. By the close of the 3'ear the reediting of Mexico was prac- tically completed and some half dozen South and Central American countiies were in process of completion. During this month also the editorial stenographic section, the du- plicating section, and the reference file section were formally placed under the supervision of the chief of the Editing and Carding Divi- sion. This brought about a correlation of work that had not pre- viously been possible. Tlie total number of cards on file in the division on December 31, 1917, was about 50,000. By December 31, 1918, this number had increased to approximately 436,000, and by April 19, 1919, the day on which the division ceased operations, to approximately 445,000. The following table summarizes briefly the work done during the periods signified : Work of Editing and Cardinig Division. Jan. 1, 1918. to Ajir. J 9. 1919. Reports digested and carded 127, 539 Sets of cards made front Sept. 1. WIS, to Apr. 19, 1919. Original character cards 212,721 Reedited cards 50, 862 General information cards (approximate) 2,100 Total 205,083 The bureau obtained its information from various channels in ad- dition to the investigations of its own staff. The chief of these were MilitaiT and Xaval Intelligence, cable censor, postal censorship, both American and allied. Department of State, including all diplomatic and consular agents, French and British Embassies, including the various intelligence services. Department of Commerce, through its commercial attaches, and the Department of Justice, through its Bureau of Investigation. The relationship of the bureau with these various agencies was a reciprocal one, since many of them received as well as gaA'e information. To a considerable extent the bureau has Ijeen a clearing house of war trade intelligence for the governmental departments and for the allied nations. Some of the chief sources of information are indicated in the fol- lowing table: S'jiin-cs of reports (liiiested and carded by Bureau of Ww Trade Intelligence Jan. 1, 1918-Apr. 19, 1919. Postal censorship 53^ 125 Department of State 22, 514 Secret Service Division, Treasury Department 3, 245 .Militnry Intelligence Di\ision, War Department 1,257 British Emliassy, Washington 1,403 Office of Naval Intelligence, Navy Department l! 257 REPORT OF THE WAR TRADE BOARD. 269 British 'Wur Trade Intelligence Department 2,833 Department of Justice fiW) Alien Property Custodian (j4(j French Embassy, Washington 63(5 Cable censorship 377 Department of Commerce IS'6 Textile Alliance 44 Miscellaneous 39, 457 Total 127, 539 EXAMINING DIVISKIN. The Examining Division fell into three units, with a fourth that was correlated with the other three, as follows : (a) Foreign country examiners. (b) United States examiner for exports. (c) XTnited States examiner for imports. (d) Special investigation. {a) Foreign country e.vam'iners. — The countries of the world, outside the United States, were at first arranged in seven groups, according to geographical and commercial contiguity. This was changed in the latter part of 1918 to eight groups, as follows : Foreiyii country examiners. (1) Dutch East Indies, Portugal, Spain. (2) Argentina, Bolivia, Chile, Ecuador, I'araguay, Peru, Uruguay. (3) Mexico. (4) Colombia, Costa Kica. Dominican Republic, (4untemala, H ili, Honduras, Js'icaragua, Panama, Salvador, West Indies. (5) Africa, Brazil, Denmark, Greece, (4uiana. Holland, Iceland, Nor- way, Russia, Switzerland, Sweden, Venezuela, and miscrlla- neous. (6) China, Japan, Siam. (7) Cuba. (8) Substitute firms. Further subdivisions of the country groups were made at a still later period, but the above is indicative of the organization that func- tioned during the year. Each group was under the supervision of a foreign country examiner. He became an expert on commercial, po- litical, and industrial conditions in the countries in his charge and in the light of his expert judgment was able to interpret the infor- mation constantly received on individual business houses. All incoming reports went first to the interested examiners. In this way information of value in the granting or refusing of appli- cations was available very quickly after its receipt by the bureau. Applications passed upon by the foreign country exannners were of three types: Export. Import. Enemy trade. In the case of export applications, the examiner approved or disap- proved the consignee and/or the purchaser aln'oad. In the case of import applications, he approved or disapproved the consionor. Enemy trade applications covered the exportation and importation of goods, communications, financial transactions, etc., and m the ca'^e of these applications it was the duty of the examiner to give to the Bureau of Enemy Trade such information as was available concern- ing the party to the application who was within the examiner's juris- diction. 270 REPORT OF THE WAR TRADE BOARD. Obviously, no examiner's office could beforehand have available information on every business house that might be named on apph- cations which came to it. In December, 1917, the bureau had avail- able information on about 8 per cent of the persons and firms named on applications then coming to it. By October 1 approxmiately 80 per cent of such persons and firms were represented in the files. When such information was not on file, the application might be passed, if it were not apparently suspicious and the amount iiiA'olved were small. At times, however, it was necessary to hold applications until information could be obtained. This Avas typically done by cabling to an American consular officer. The main reliance of the examiner in passing upon applications was found in the character cards made by the editorial room. All cards pertaining to his countries were sent to each examiner and were filed in his^ office for ready reference. With the editorial cards for each business house was filed a "master card" on which was sunnnarized very briefly the status of the house in question. By this method the "examiner's assistants, by inspecting one card, could almost automatically grant or refer applications. As new informa- tion came in either in the form of original reports or editorial cards, it was considered in the light of the earlier information and neces- sary changes were made on the master cards. In most of the examiners' offices applications were typically granted by the assistants without reference to the examiners, but were refused only after the specific approval of the examiner or the assistant examiner had been obtained. While the handling of applications was the basic work of the examiner's office, various other duties required an appreciable por- tion of his time. The preparation of cables and dispatches to con- sular officers was an important function, as was the handling of a rather extensive correspondence with applicants, both in obtain- ing additional information from them and in answering their in- quiries in regard to applications. Such letters as followed estab- lished forms were signed by the examiners; other letters were prepared for the signature of the director. A particularly im- portant piece of work was the cooperation with the Listing Division in the nomination and approval of business houses for the enemy trading list, the cloaks list, and the confidential suspect list, and their removal therefrom. The following table presents statistics of the applications handled by the foreign country examiners from August 3. 1918, to April 30, 1919: Import and export appUculiona handled liii foreign eouritry examiners. Date. 191S. Four weeks ending Au- gust 31 September October November December Numbe 12T, S4.5 13:"i, 775 140, -195 IS), (150 ins,S71 Per cent re- Daily fused. average. 3.00 5,327 2.59 5,657 2.25 5,634 2.49 6, 444 2.49 4,536 Date. 1919 January February March. . ." April Number. 73, 450 14, 0.52 5,507 2,925 Per cent re- fused. 1.38 .98 1.21 1.06 Daily 611 212 REPORT OF THE WAR TRADE BOARD. 271 (6) United States examiners for exports. — The organization of the United States examiners' offices was, in general, similar to that of the offices of the foreign examiners. Their function was to pass upon business houses in the United States when such business houses were namecf in export or enemy trade applications. For the more effective handling of the work the United States was divided geographically as follows: (1^ New York City and the insular possessions. (2) The remainder of the country east of the Mississippi River. (3) The district west of the Mississippi Eiver. Ordinary export and enemy trade export applications that had been granted by the foreign examiners came to the United States examiner for action. The procedure was similar to that in the for- eign examiners' offices, except that consular reports were here replaced by special investigations typically conducted by the Secret Service Division of the Treasury- Department, the Bureau of Investigation of the Department of Justice, or by the bureau itself. As in the case of the foreign examiners, the handling of applica- tions was the chief function of the office, but various collateral func- tions made large demands upon time and energy. At the request of the State Department, the office passed upon the status of the appli- cants for passports, visas, etc. About 50 such cases were handled each day, involving, perhaps, 100 individual investigations. The following table presents certain statistics concerning applica- tions handled from August 3, 1918, to April 30, 1919 : Export applications handled Viiited States examiners for exports. Date. 1918 August 3-31.. September October November December Number. 128, 261 132, 284 144. 616 149, 791 108, 574 Per cent re- fused. 2.39 1.16 .46 .63 .6,5 Daily average. 5,344 5, 512 5, .562 6,241 4,. 524 1919. .lanuary February March .iipril Per Number. cent re- fused. 77,022 . 16 16,44.S .35 7,327 .55 1,710 .00 Daily average. 2,962 715 2S1 57 (c) The United States examiner for imports. — The point of view was so different from the point of view in handling export applica- tions that it was necessary to establish a separate office to pass upon the status of import consignees. The need for nitrate, platinum, or manganese might be such that an import license could be granted to a somewhat questionable firm if such action would bring needed sup- plies inter the country. Export applications, however, were con- stantly in excess of export facilities, so that, without injuring Ameri- can trade as a whole, the bureau was enabled to select its licensees, with the result that export licenses were granted only to firms whose loyalty was above question. "The United States examiner for imports was brought, of course, into contact with the Bureau of Imports rather than with the Bureau of Exports. In the main, however, his problems and procedure were the same as those of the foreign examiners and the United States ex- aminer for exports, except that he had no listing work. 272 EEPOKT OF THE WAR TKADE BOARD. The following data show the number of applications handled by the United States examiner for imports from September, 1918, to April 30, 1919: Applications passed upcm hy United States' examiner for imports. Bate. 1918 September October November December Number. 11,508 10, 285 9,570 8, .381 Per cent re- fused. 2.18 1.69 1.88 1.73 Daily average. 395 399 349 Date. 1919. January February March April Number. 12, 267 6,320 4,760 2,894 Per cent re- fused. 1.08 .88 1.97 1.37 Daily 471 231 183 96 (d) Special mvestigations. — Special investigations of business houses in this country were made by an office that actually functioned with the Examining Division, although technically a part of the Ee- search and Investigation Division. The following table presents in summary form the volume of work handled by this office during the calendar year 1918 : Requests for information. Number, United States examiners for exports 1, 871 United States examiners for imports 168 Researcli and Investigation Division 139 Enemy Property Division 104 Alien Property Custodian 2 Foreign country examiners 5 Violations Committee 26 Bureau of Enemy Trade 12 Miscellaneous 33 Total 2, 860 Reports received 2,903 Requests for search of files of other Government departments 1, 272 Requests sent out for information on enemy firms ahout vs'hlch no infor- mation was in files 489 Requests for commercial information (to Sept. 1), approximate 3,200 Investigations by special agents of War Trade Board (to Sept. 1), ap- proximate 800 Investigations of New York exporters (to Sept. 1), approximate 800 An important change in the method of handling applications was put into effect during the month of November, 1918. Previously there had been on hand regularly an unusually large number of appli- cations which were held pending investigation. Owing to the pres- sure of work on the consuls, who were frequently called upon for in- vestigation, to the delay in transmitting cables, and to the fact that reports were often conflicting, etc., it frequently happened that appli- cations were held for a number of months. In much of the work of the bureau it was necessary to compromise between the most effective control from the viewpoint of enemy character and the clear obliga- tion of imposing restriction on export trade which would not be un- reasonably burdensome. Instructions were issued about November 15 that no application should be held pending investigation or for any other reason for more than six weeks. If at the end of that time sufficient information had KEPORT OF THE WAR TRADE BOARD. 273 not been received upon which to base a final decision, the application was refused and the applicant notified that he might reapply at a later date. It was felt to be unreasonable for the Government to delay its decision in such cases for more than six weeks, and furthermore that the necessity of reaching a decision within this time would tend to speed up the machinery of investigation. The results of this regu- lation are indicated by the following figures, which show (1) the num- ber of applications on hand before this regulation was issued and (2) the number of applications on hand after the regulation had become effective. Applications held in pendvng file. Oct. 24. Nov. 30. Mcrellian: 4 36 322 592 623 445 253 867 5 mouths. .-,.- 1 6 2 months 29 166 388 229 For several months a plan had been under discussion by which it was hoped that applications could be passed upon in the Bureau of Exports and in the branch offices without reference to the Bureau of War Trade Intelligence. Under this plan it was contemplated that the Bureau of War Trade Intelligence would furnish definite de- cisions on the status of business houses that were unquestionably •• passed " or " refused." During the month of November 7,421 names were furnished to the Bureau of Exports and machinery estab- lished for a rapid increase in the number of these names and for the correction of the lists from day to day. The applications for import licenses refused during the period December 3, 1917, to May 15, 1&19, by the Bureau of War Trade Intelligence because of enemy status numbered about 4,500 and the value of the commodities specified in the applications amounted to slightly more than $118,470,000. While some of these applications were granted by the Bureau of Imports for various reasons, the fol- lowing table of refusals by the Bureau of War Trade Intelligence gives an indication of the extent and distribution of enemy tainted goods that bore ^Ajxierican connections : Refusals because of eiiciiiy^ status. Countries and groups of countiies. European Allies Japan and China European neutrals Bussia Cential Powers Central America West Indies South America, not including the Gmanas Mexico Enemy'syinpaVhizers within the United States.. Location of requesttd shipment. 814,339,281 4,21.5,959 33, 440, 46G 245,670 4,688,378 10. 168, 368 2; 357, 455 30, 537, 364 17, 720, 441 857, 500 Location of enemies i connected with re- quested ship- ment. 452,836 335, 492 486, 842 120, 588 315,416 526.019 227, 989 836,036 241, 183 38,934,025 103584^-20- I As defined by the trading with the enemy act. -19 274 EEPORT OF THE WAR TRADE BOARD. The following table shows the nature and value of shii^ments dis- approved between December 3, 1917, and May 15, 1919, by the Bureau of War Trade Intelligence because of enemy character : Commodity. Value. Minerals and ores $4,802,782 Metals ^- 12, 355, 170 Farm products not specifically listed 13, 973, 994 Hardware 1, 279, 458 Textiles and textile materials 3, 872, 189 Manufactured foods 5, 996, 961 Timber and timber products 9,293,491 Jewels, diamonds and precious stones 2, 846, 833 Manufactured goods not otherwise specified 5, 283, 596 Scientific instruments and instruments of precision 2,947,513 Raw wool 6,299,040 Tobacco and tobacco products 6, 827, 562 Drugs and chemicals not otherwise specified 3, 132, 803 Hides, skins, furs, and leather 7, 117, 157 Rubber derivatives, rubber and rubber products 6, 010, 560 Coffee 20, 564, 145 Dyes and dyestuifs 888,536 Miscellaneous — commodities not otherwise specified 5, 326, 467 KESEAKCH AND INVESTIGATION DIVISION. In the evolution of the Bureau of War Trade Intelligence it early became apparent that cases frequently arose where the examiners were unable to arrive at decisions, either from lack of information or because of conflicting evidence. Such " questionable cases " re- quired special research and investigation, which the examiners were unable to undertake without seriously interfering with the flow of applications through their offices. The Division of Research and Investigation may therefore be said to have been created to investigate these questionable cases, which greatly increased in number as the work of the bureau grew. In January, 1918, three men were assigned to this work. By the latter part of the year the division comprised 11 men, all lawyers of ex- perience, who, by reason of their former training, were peculiarly adapted for this class of work. All cases referred to the division were handled through a central office, where a record was kept of each case, showing who was handling it and the status of the case at any given time. Although most of the cases handled by this division were received direct from the examiners, its work was by no means confined to such cases. Members of the War Trade Board, the Contraband Com- mittee, and outside governmental agencies frequently referred mat- ters to the Bureau of War Trade Intelligence for investigation and report. This division also took charge of all cases transmitted to the bureau involving violations and evasions. A very important phase of the work of the division was the in- vestigation of firms in the United States for the consignor section of the Examining Division. At the time when the Research and Investi- gation Division started operations about 165 business concerns in the United States were regarded with grave suspicion by the exam- iners and their applications were refused. Each of these firms was made the subject of a very careful examination. This task involved REPORT OF THE WAR TRADE BOARD. 275 a vast amount of detailed examination of original documents on file in the bureau, the collection of evidence from other departments of the Government, and special investigation by operatives working under its direction. In a great many instances also it included in- terviews with representatives of various firms and an audit of their books and papers. This work was not confined entirely to analytical investigation, but in a great many cases was of a constructive nature. In the case of some 30 or more firms it was found that the objectionable enemy element could be satisfactorily removed, and this was in fact done. More than 100 additional business houses located in the United iStates were later investigated, of which number 27 were found to be unreliable consignors. Owing to its nature the work of the division rather naturally divided itself along commodity lines. Investigations of the chemi- cal and dye trade, tobacco industry, wool industry, etc., referred to on page 58 of this report, were made by this division. It also actively interested itself in negotiations aiming toward the appointment by certain Latin-American countries of custodians of enemy property with full powers to liquidate enemy interest with- in their respective jurisdictions. It was hoped this policy would supplement by direct action the elimination of enemy peaceful pene- tration in Latin America, which was the object of all foreign ac-' tivities of the Bureau of War Trade Intelligence. Prior to September, 1918, all cases of evasions of regulations and violations of law which came to the attention of the bureau were investigated by this division. For several months previous, about 100 such cases a week had been received from the Postal Censorship Committee. Each of these cases Avas investigated and action taken upon it. As a result of these investigations it was found that most of the evasions and violations were committed either through care- lessness or ignorance. In all cases, however, where the violation or evasion was found to be willful appropriate action was taken. During the same period the Bureau of Exports had reported to the division all cases of evasions coming to its attention and the division had undertaken to investigate and report upon these cases. Investigations concerning reported sales of licenses and of cases where licenses were secured upon misstatements led to an examina- tion of the form of export license then in use. One of the members of the division made a special study of this situation and, in coopera- tion with representatives of several of the other bureaus and with members of the Contraband Committee, developed a proposed new form of license. This form combined upon a single sheet both ap- plication and license and made possible prosecution in many cases of evasion for which no regular penalty had previously existed. During the month of September an important change occurred in this phase of the work of the division, resulting from the organ- ization of the Violations Committee. The Eesearch and Investi- gation Division prior to this time had investigated all cases of evasions of War Trade Board regulations and of violations of law. As stated above they had investigated cases for the Bureau of War Trade Intelligence and also cases referred to the latter by the Bureau of Exports. These cases were hereafter referred to the 276 KEPOKT or THE WAK TRADE BOARD. Violations Committee and but a small percentage came back to this division for investigation. This diminished the volume of work handled to an appreciable extent. Another member of the division gave a large portion of his time to investigating the activities of lawyers and other agents represent- ing applicants for licenses. CENROKSHIP AND COEKESPONDEXCE DIVISION. The executive order of the President, dated October 12, 1917, pro- vided for a censorship board under the authority vested in the Presi- dent by the trading with the enemy act. Since the director of the bureau was the lepresentative of the AVar Trade Board on the cen- sorship board, the relations of the bureau with the latter were pecu- liarl}' close. Mail censorship was in the hands of the various postal censorship committees, on which the director of the bureau w'as represented. The function of the dii'ector's representatives was — («) To pl■e^"ent commimication w-ith enemies within the mean- ing of the trading with the enemj' act, and to prevent other communications in violation or evasion of the eco- nomic regulations adopted by the United States in its prosecution of the war, and (b) To gather information of value to the United States in carrying on its trade warfare. The representative of the War Trade Board also acted for the De- partment of State in the handling of privileged mail and gathered information of interest to the department. Special reports on po- litical conditions in China and Russia as evidenced or corroborated by intercepted letters were prepared for the department. The cable censorship was exercised through the chief cable censor and had control of all cable messages. Land messages passing be- tween the United States and foreign countries were under the con- trol of the chief military censor. The Censorship and Correspondence Division acted as a clearing house between the various censorship offices and the bureau. Nor- mally about 150 doubtful cases were referred by the Postal Censor- ship each week for disposition by this division. About 75 such cases were referred every day by the cable censor and a lesser number by the military censor. Much of the information received from the censorship offices was of interest to other governmental agencies, and an important func- tion of the division was to forward this information to such agencies as the Division of Foreign Exchange of the Federal Reserve Board, Alien Property Custodian, and Fuel Administration. Having such a large correspondence of its own with outside agencies the division seemed the logical pbice for the coordination of the correspondence of the entire bureau. Accordingly all outgoing letters were routed through this division and were passed upon by it. In this way the work of the A'arious divisions of the bureau was coordinated. The work of the Censorship and Correspondence Division de- creased to a marked degree in November, due in part to the general )*elaxation common to all governmental agencies following the sign- REPORT OF THE WAR TRADE BOARD. 277 ing of the armistice and in part to the fact that the conclusion of the armistice, accompanied as it was with the practical assurance that final peace would i-esult, made unnecessary several phases of intelli- gence work. Fewer letters were scrutinized closely and fewer com- ments were made by the censors. This was particularly true of cor- respondence containing commodity information, formerly used by the Bureau of Exports, Bureau of Research, War Industries Board, Food Administration, etc. Thereafter more stress was laid on exami- nation of correspondence containing Bolshevist or anti-American propaganda, of great interest to the Department of State. Strict control of attempted communication with enemies and correspond- ence from enemies was still maintained, as well as strict surveillance of actual or attempted evasions and violations of law or regulations. ENEMY PROPEKTT DIVISION. The chief interest of the Enemy Property Division was with prop- erty in the United States and its possessions which was seizable under the trading with the enemy act. Its functions may be summarized as follows : 1. Acting as a clearing house for the bureau in its relations with the Alien Property Custodian. (a) To locate enemy property in the United States and re- port it to the Alien Property Custodian. (h) To gather information tending to establish enemy or nonenemy character of persons and institutions whose property had been reported to the Alien Propei-ty Custodian. (c) To keep available information concerning business houses in which enemy interests were found. (d) To guard against the reinstatement of enemy interests by dummy or otherwise. (e) To act in all instances as a liaison medium between the bureau and the Alien Property Custodian. 2. Cooperation with the Bureau of Enemy Trade to ascertain if companies operating or liquidating under license were complying with the terms of their licenses. (a) Locating enemy property.— A-W information received by the bureau that tended to disclose possible enemy-owned property was referred to this division. When sufficient data were not found m the files of the bureau, outside investigations were mitiated. These were made through the branch offices of the War Trade Board, the secret service, the diplomatic and consular services, and the postal and cable censorship offices. Information was frequently sought from the representatives of the Allied Governments. The success of the division in locating enemy property is indicated m the cases recited on pages 57-59 of this report. An important but often overlooked result of investigations by the division was the clearing up of suspicion that in many cases had been thrown upon the ownership or good faith of a business. The inves- tigations thus freed legitimate American activities from the hamper- ing effects of such unsubstantiated rumors or inaccuracies. (h) Establishing character of persons and institvtioris reported to the Alien Property Custodian.— From time to time detailed reports 278 KEPOET OF THE WAR TRADE BOARD. were prepared for the Alien Property Custodian, presenting in extended form all information then available which tended to estab- lish the enemy or. nonenemy character of persons and institutions previously reported upon. (c) Keeping available information concerni7ig firms in which enejny interests were found. — This division prepared a card index of all firms in which the enemy interest was taken over by this Govern- ment. There was thus readily available information as to the pro- portionate enemy interests taken over, the names of the Govern- ment's directors and counsel, and the name of the supervisor as well as the degree of supervision exercised by him. Not only was this information available in cumulative form in the Division of Enemy Property, but in addition, as rapidly as it was received, it was sent to the following offices : (1) The Examining Division of the bureau, where it was used in passing upon applications, in ascertaining the necessity for the countersignature of the supervisor, etc. . (2) Branch offices of the War Trade Board. Here it was use- ful not only in passing upon applications within the juris- diction of the branch offices but in furnishing informa- tion to local inquiries from other governmental agencies and from the public. (3) Cable censor. (4) Postal censor. (5) Military Intelligence Division. (6) United States Embassy, London. i^ct) Guarding against enemy interests reinstating themselves. — It was only after every effort and subterfuge had been exhausted that enemy interests discontinued their attempts to regain their prop- erty after it liad been taken over by this Government. For this reason it was necessary to scrutinize with the greatest care the pur- chasers or successors in interest of any business so sequestrated. In many instances an effort was made to sell or otherwise transfer such a business to a representative or cover of the original enemy owner. (e) Acting a.s a liaison mediu/m between the custodian and the bureau.— There was obvious necessity for close cooperation between the Alien Property Custodian and the Bureau of War Trade Intelli- gence. A cordial contact between the two organizations was devel- oped, resulting in a full interchange of information and a free access by each to the files of the other. The following figures give some idea of the extent to which this exchange occurred : Correspoudcncr hctireen AHen Property Custodian and Enemy Property Divi- sion — Calendar year 191S. Reports to Alien Property Custodian in answer to written requests 2,361 Reports initiated l>y Enemy Property Division 501 Reports from secret service investigation 101 Total reports to Alien Property Custodian 2,963 Reports from Ali(>n Property Custodian in answer to written requests 149 Reports initiated by Allen Property Custodian 28 Total reports by Alien Property Custodian 177 Note. — These figures do not include reports by telephone, which were numerous. REPORT OF THE WAR TRABE BOARD. 279 Percentage of reqnests for which division could not furnish information. Per cent. April, 1918 22 October, 1918 11 LISTING DIVISION. This division was charged with the compilation of the enemy trading list, the confidential suspect list, and the cloaks list. At the time the first enemy trading list was issued the Bureau of War Trade Intelligence was in the process of its earlier development. Its co- operating agencies had not yet been trained and its work had not yet become specialized. The first list, therefore, was compiled and issued under serious difficulties by a staff which, at .the same time, was engaged in other work. In the evolution of the bureau a distinct division was created for handling the various lists. This division extended the enemy trading list to cover the countries of Europe as well as those of Latin America. The number of names was more than doubled. The work of compilation was systematized and the publication of additions and removals placed on a regular periodic basis. Publication of names was made about every fortnight in the press, in the Official Bulletin, and in Commerce Reports. Advance notices of changes were sent to all branch offices of the Board, to consular and diplo- matic officials in foreign countries, to the governor of the Panama Canal Zone, to the cable and postal censorships, to the Alien Prop- erty Custodian, and to the British and Italian Embassies and the French High Commission in Washington. Changes were incor- porated in a cumulative supplement bearing the same date as publi- cation in the press. These cumulative supplements appeared as promptly as the pressure of work in the Government Printing Office permitted, and were distributed by the Division of Information of the Board to an extensive mailing list. In order to expedite the work of licensing exports and imports and to inform promptly the various agencies of the Government of persons and firms in neutral countries against whose names the records of the bureau disclosed enemy trade, it was found necessary to compile and distribute to a limited number of governmental agencies two confidential lists. The first of these was the confidential suspect list. This included names of enemy traders which were not included in the published enemy trading list for reasons of expediency. A frequent cause of omission from the published list was" the official status or political importance of the person in the neutral country. The cloaks list, covering Latin America and Spain, was issued by the bureau, in the name of the Board, on behalf of Great Britain, France, Italv, and the United States for the use of their officials. This was a list of persons and firms without standing in interna- tional trade whose names were used by .listed firms as covers for obtaining goods. The signing of the armistice raised the question whether the enemy trade policy of the War Trade Board should be continued. This question was answered on November 25, 1918, when the Board unanimously passed a resolution that the " black list, confidential list, 280 EEPOKT OF THE WAR TRADE BOARD. cloaks list, and all other enemy trade restrictions and safeguards should be continued by the United States and the Allies until the ratification of a treaty of peace between the United States and the Allies and the Central Powers." In pursuance of this resolution the work of the listing division continued until the close of the year. NEW YORK OFFICE. The New York office was primarily an investigating branch of the bureau in Washington. Eequests for information received by the New York office from the main office averaged about 15 a day. The New York office, however, grew beyond its original scope. It became a center of war trade information for the city of New York and its contiguous territory. The office had in its files a complete set of the bureau cards on New York persons and firms ; after May 13, 1918, it received a complete set of editorial cards. The office worked in close cooperation with a number of govern- mental agencies and with certain representatives of the Allied Gov- ernments. In addition it developed a public information service which answered about 50 inquiries a day. Some of the agencies served by the office were the cable censorship, the Federal Reserve Board, the mail censorship, the Customs Intelligence, the Depart- ment of Justice, the War Industries Board, and the allied consulates. PERSONNEL AND PAY ROLL. The following figures indicate in a general way the growth of the Bureau of War Trade Intelligence during 1918 to care for the ex- panding program that has been described : Datf. Personnel. Total. Examiners, assistants, etc. Steno- graphers, typists, etc. 66 277 277 250 203 Pay roll. Jan. 1 1918. 101 430 417 388 332 35 153 140 138 129 $9,298 Aug. 31 46,032 Oct. 31 45,259 Nov. 30 46,353 Dec. 31 45, 624 It will be seen from the foregoing report that the Bureau of War Trade Intelligence had by the end of the year 1918 collected and maintained in form readilj- available to the examiners information with regard to consignors and consignees upon which over 80 per cent of the applications could be acted without investigation or de- lay ; that various chaimels, through which there was a steady flow of information, had been established by which this information was redistributed by the Burfeau of War Trade Intelligence to the va- rious other governmental agencies to whom it could be of use; that through cooperation with the Department of State the bureau was endeavoring to eliminate from German control some of the larger companies, including public utilities in Latin America, and to sub- BEPOKT OF THE WAR TRADE BOARD. 281 stitute in their place organizations controlled by American or Anglo- American capital. The results, tangible and intangible, of this warfare on enemy trade, while not susceptible of statistical demonstration, were, ac- cording to evidence received from various reliable sources, important and far-reaching. CONSOLmATION WITH THE BUKEAU OF ENEMY TRADE. Following the signing of the armistice there was considerable re- laxation in the work of the Bureau of War Trade Intelligence, and after the suspension of the enemy trading lists on April 29, 1919, there remained little work to be done. On May 12, accordingly, the bureau was consolidated with the Bureau of Enemy Trade under the name of the latter. One War Trade Intelligence examiner was retained to handle the few pending matters such as the answering of inquiries that continued to come in regarding past action by the bureau, and arranging the material of the bureau for ultimate trans- fer to the Department of State, and also, at the request of that department, to continue to exercise a certain supervision of Mexican trade. At the request of the Department of State also the Passport Division continued in operation in order to make available to the department, in connection with requests for passports, the informa- tion contained on the War Trade Intelligence character cards. THE BUREATJ OF FOREIGN AGENTS. HISTORICAL SKETCH. The Bureau of Foreign Agents and Eeports was established by a resolution of the War Trade Board in regular session, November 2, 1917: Resolved, That the War Trade Board hereby establishes a Bureau of Foreign Agents and lleports, and said bureau is hereby authorized and directed to as- sume the Instruction and direction of the special agents of the Department of State in foreign countries who are, or will be, engaged in the collection of in- formation for the Board ; and to exercise all such other functions as may prop- erly appertain to said bureau. It was arranged that the bureau should take over certain func- tions, force, and equipment from the secretary's office, be operated under the supervision of a subcommittee of the JBoard, and be respon- sible to the chairman. When the bureau was created, there were five foreign representatives of the War Trade Board, located in Holland, Denmark, Sweden, and Spain, there being two representatives in Spain. The number of foreign agents was increased during the year 1918 until at the time the armistice was signed the Board had repre- sentatives in Argentina, Bolivia, Brazil, the Canary Islands, Chile, China, Cuba, Ecuador, England, France, Greece, Guatemala, Italy, Japan, Java, Mexico, Norway, Peru, Portugal, Ru.ssia, and Switzer- land, in addition to the four countries first enumerated. In some of these countries a confidential force was employed, there being 3.5 in England, 18 in Spain, and 11 in France. Subsequent to the signing of the armistice offices were established in Colombia, Honduras, Fin- land, Luxemburg, and Austria. A complete list of the foreign staff is contained in the Appendix. Most of the foreign agents and representatives of the Board had semidiplomatic status with the Department of State and had official appointment from the Secretary. They were paid from a special fund allotted to the War Trade Board by the President from the national securit^^ and defense appropriation. On or about Decem- ber 1, 1918, the War Trade Board allotment for foreign agents was exhausted and the Secretary of State formally accepted financial responsibility for the War Trade Board foreign agents on and after December 1, 1918, and undertook to pay their salaries and expenses from certain funds allotted to the Department of State. This ar- rangement continued until some time in April, 1919, when, by reason of failure of Congress to make the necessary appropriations, the Department of State was compelled to call upon the War Trade Board for funds with which to continue the foreign agents. After a conference of the representatives of the War Trade Board, the Department of State, and the Office of the Comptroller an arrange- ment was made whereby the Department of State would continue to make the payments to the foreign agents abroad and be reimbursed 282 VAR TRADE BOAF.D CHAIRMAN BUREAU OF RESEARCH AND STATISTICS DIRECTOR DIVISION OF RESEARCH DIVISION OF TABULATION AND STATISTICS! COMPILATIOM GENERAL OFFICE COUNTRY STUDIES PLAN NINd SECTION COMPILATION SECTION (SCANDINAVIAN SECTION FILES STENOGRAPHERS AND TYPISTS COMPUTATION SECTION 0EPTOFCOM MERCE SECTION V\/E5T COAST OF 50UTH AMERICA AFRICA SCANDINAVIAN COUNTRIES ITALY MEXICC'W.INDIES'CEN TRALAMERlCA'N.COASTi- OF S AMERICA-PARAGUAY RUSSIA 3PAIN- PORTUGAL AZORES -CANARY IS. - FRANCE-BELGIUM SPECIAL STUDIES COMMODITY STUDIES CENTRAL POWERS MINERALS AND HAW MINERAL PRODUCTS HOLLAND PHILIPPINE ISLANDS EAST INDIES BREADSTUFFS COARSE FiBRE5 CHINA ANDJA PAN 51L«-WOOL-HAlR. BRAZIL URUCUAY FOREST PRODUCTS SWITZERLAND GREECE PAPER AND PULP AND THEIR PRODUCTS MAN'PBS. OF LEATHER ARGENTINA COTTON AND COTTON BY-PRODUCTS '— GREAT BRITAIN METAL MANUFACTURES SERVICE SECTIONS CLERICAL EDITORIAL - OFFICE OPERATION SECTIONS - TYPIST CODING - - TA6ULAT161 "- CONVERSION PUNCHING 3 - FILING HIDE5S.CRUDE LEATHER MEAT&.DAIRY PR0DUCT5 VEGETABLE &ANIMALOIL^ COAL, COKE AND MINERAL OILS - CHEMICALS MISCELLANEOUS COMMODITIES RUBBER. 103584—20. (To face page 247.) f Vi n. fi ■i 1 i HI ' >^ HI iHft /ri -J REPOBT OF THE WAB TRADE BOARD. 283 by the War Trade Board disbursing officer on presentation of proper accounts. During the period up to April 18, 1918, the character of the work accomplished in the "Washington office was to receive the reports of foreign agents, make an abstract of their contents and route the in- formation to the proper bureau heads. The qualifications for ab- stracting required men of unusual ability and those possessed with a more or less intimate knowledge of the foreign countries with which they were concerned. The abstracter not only made digests, but also Studied the economic and political conditions of the countries THE BUREAU OF FO REIGN AGENTS SERVICE CHART and was expected to become an expert so that he could advise any member of the War Trade Board regarding recent or pertinent ni- formation. , ^ i ^ i.- j „„, After April 18, 1918, most of the work of abstracting and com- piling and all the material in the files were turned over to the Bureau of Research, which thereafter assumed the responsibihty of prepar- ing reports and supplying the War Trade Board with all desued information relative either to commodities or countries. The chief function of the Washington office was henceforth to col- lect, file and route all foreign information as well as to select and 284 KEPOET OF THE WAE TRADE BOAED. train applicants for foreign positions of the War Trade Board. The chart on page 283 shows how the information was diverted to the different bureaus of the War Trade Board and to other departments of the Government. Owing to the changed policy of the Board incident to the signing of the armistice, several men who had received appointments as foreign agents were allowed to resign without going abroad; and the polic}' of the bureau thereafter was to withdraw the foreign agents as rapidly as their work permitted. On June 1 only the offices in Paris, Copenhagen, The Hague, Vladivostok, Archangel, Vienna and London were being maintained. As the foreign offices of the War Trade Board were closed each senior representative was requested to submit for the files of the Bureau of Foreign Agents a historical memorandum covering the work of the Board at his post, and to fur- nish certain information and personal judgment as to the trade situa- tion in the respective countries as it affected the United States. The remaining functions of these offices together with their prop- erty and records were turned over to the Department of State in ac- cordance with Executive order of March 3, 1919.^ FUNCTIONS. The functions actually performed at the Washington office may be summed up as follows: (a) Determining the need for War Trade Board representatives in the foreign field. (i) Locating, investigating, and employing men to fill these needs and instructing and training them in the require- ments of their positions. (c) Keeping foreign agents supplied with proper equipment and clerical help and advised of the policies. and instruc- tions of the Board. (d) Receiving, copying, digesting, and distributing the reports of foreign agents to such bureaus and departments as would be interested in the particular subject matter. (See chart on p. 283, showing distribution of information.) The functions of the foreign agents may be classified under two headings: (a) To secui^e information of all kinds and (6) to act as representatives of the War Trade Board on various interallied committees and conferences. («) The character of information which it Avas desired that the foreign agents should secure for the War Trade Board is set forth in the following instructions prepared by the Bureau of Research and sent out by the Department of State to all consuls and repre- sentatives of the War Trade Board (memorandum of Sept. 4. 1918) : (1) Imports and exports: Quantities, countries of origin and destina- tion, ports Involved, etc. (2) Crops: Production, foreign trade and stocks on hand. (3) Minerals: Production, foreign trade and stocks on hand. (4) Lumber: Production, foreign concessions. (5) Water power: Development, nature of use, foreign concessions. (6) Manufacturing: Production with reference to war needs, raA^ materials, etc. 1 Sep Appendix, Exhibit I, Section X. REPORT OF THE WAS. TRADE BOARD. 285 (7) Communications: Railroads, new steam canals, steamship lines, etc. (8) Labor conditions: Farming, trade and industry, source of sui^ply, quality of labor and extent of organization. (9) Inventions or discoveries of moment and the particulnr results obtained. (10) Imports and exports of gold and silver. (11) Any change of ownership of property involving Its transfer to the hands of citizens of a different nationality ; )):inks, mines, railroads, etc.; probable signiticance of such changes. (12) Details of purchase of significant auunuits of commodities for after- the- war delivery. (13) Shipbuilding, yards, annual output, and building program. (14) Financial and banking development; rates of exchange and dis- count. (15) Fiscal affairs, including foreign debts and loans, ami methods of revenue. (16) Current plans tor rehabilitating or promoting trade and industry after the war, i. e., purchasing agencies, tariff, embargoes, etc. (17) Any current facts of importance concerning the part which your district is playing in supplying the United States and the .Vllies with essential materials and the part it has taken in the sup- plying of markets starved liy the \\-ar, together with any other economic or commercial facts or tendencies not asked tVir in this outUne which in your judgment would be of value to the War Trade Board or to other agencies of the Government. Information regarding the status and connections of firms in neu- tral countries \Yas supplied to the War Trade Intelligence by the foreign agents of this bureau. This Avork required diligent inquiry to ascertain the political bias of foreign companies and to investigate any possible subterfuge which might permit trade with the enemy. This information, being of a confidential nature, was routed direct to the Bureau of War Trade Intelligence. (b) Representation on interallied committees: Interallied trade committees (I. A. T. C.) were organized in foreign neutral cmin- tries to control blockade matters formerly handled by the British legations in the several countries. The membership of these com- mittees consisted of representatives of the United States, Great Britain, France, and Italy. The American representative in each case was a foreign agent of the War Trade Board. The functions of the I. A. T. C. were advisory, it being their duty to suggest local procedure and adyise on specific cases to the Allied Blockade Com- mittee in London. These committees were formed to bring about close cooperation between the Associated Governments on blockade matters. In countries where no interallied trade committees were formed the foreign agents of the War Trade Board cooperated with the Allies by serving on various local committees, attending confer- ences, etc., as arranged by the foreign offices for cooperative purposes. In order that the foreign agents of the Board might effectually par- ticipate in conferences with representatives of the foreign offices they were given diplomatic status by appointment as special assistants of the Department of Stata IV. AGENCIES OF CONTROL. THE BUREAU OE EXPORTS. THE BEGINNING OF EXPORT CONTROL. The Executive order of the President, signed June 22, 1917, gave to the Secretary of Commerce the authority, vested by the espionage act, to achiiinister the control of exports undei' rules and regulations es- tablished by the President. In conformity with this order the Sec- retary of Commerce caused to be organized in the Bureau of Foreign and Domestic Commerce a Division of Export Licenses. The procla- mation of July 9, 1917, named the first group of commodities sub- ject to this control, and on July 9, some 15 or 20 men, all volunteers, comprising the Division of Export Licenses, moved from the Depart- ment of Commerce Building to the building being prepared for their occupancy at 1435 K Street. The Division of Export Licenses, under the Department of Com- mei'ce, woi'ked as such, constantly increasing in size until the Presi- dent signed an Executive order August 21, 1917, effective August 27. This order created the Exports Administrative Board as an entity ^:eparate from the Departn^ent of Commerce, and transferred the Division of Export Licenses fi'om the Department of Commerce, it then l)ecoming the Bureau of Export Licenses of the Exports Ad- ministrative Board. This bureau continued to operate as such until the formation of the War Trade Board whicli was constituted by the Executive order signed by the President on October 12, 1917, after which date it became the Bureau of Exports of the War Trade Board. On August 27 a new proclamation was signed and became effective August 30, 1917. This proclamation made it necessary to procure ex- poit licenses for all articles of commerce when shipped to " enemy " territory or to any of the European neutrals, and also required the licensing, before exportation, of a greatly increased list of articles destined for all other countries of the world. The formation of the War Trade Board became necessary on account of the increased, con- trol over commerce authorized by the trading with the enemy law. Cntil the "\A"ar Trade Board was formed on October 13, 1917, all of its executive Avork was carried on by the Bureau of Exports organized into various divisions, wliich divisions were subsequently changed to bureaus and made independent of the Bureau of Exports. On No- vember 28 the third export proclamation was issued, adding certain commodities to the list contained in the second half of the proclama- tion of August 27. It was necessitated by the publication on Novem- ber 2s of the President's proclamation 'controlling certain imports. Many of the articles covered by the import proclamation came from British possessions and had heretofore been controlled by the British Government. In taking over the control of these articles it became necessary to supervise both their import and their exioort. The final step in laying the groundwork of export control came with the President's proclamation of February 14, 1918, prohibiting the export of any and all commodities of commerce except under license. 286 WAR TRADE BOAPD CHAIRMAN BURWu or A5%mi DIRfGTOR DIRECTOR /155IST/IMT DIfiKTOR ADMIMI5TRAT0R r BUNKER FORM FILE ASSISTANT TO DIRECTOR Zl ASSISTANT TO DIRECTOR COMPILATION OF eURFAU ROTRTS PREPARATION! OF FORMS PRrPARATIOK . or RUtINU DIVISION or RECORDS COflfiESPONDENCE FILES SHIP FILES DAILY RTCOHD Of licrwFS eumo 6Y swn. iNOTtrM FILE LICENSE REVIEV -"• CORRECTION ^ BUNKER FORMS T7\BULAT]0M BUNKER FUEL SHIP STORES AUDITOR SHIP TRANSTER' APPROVAL OF SALE OF SHIPS SUPPLIES OfFll EQUIPMENT ASfffTS' fDRM5 BRANCH AGENCIES NEW YORK B06TOM L06 ANGfLES 5AM FRANCISCO SEATTLE 103584 — 20. (To face page 343.) REPORT OF THE WAR TRADE BOARD. 287 THE FUNCTIONS OF THE BUREAU OF EXPORTS. The Bureau of Exports was an entirely administrative depart- ment, operating in accordance with the policies and rules and regu- lations laid down by the War Trade Board and conveyed to the bureau in what were known as " Confidential General Instructions of the War Trade Board." In these instructions were incorporated the earlier rules and regulations of the Exports Administrative Board and of the Department of Commerce. The bureau worked in close cooperation with other bureaus, such as Research and Statistics and War Trade Intelligence, and depended largely upon them for results. The work of the bureau as an administrative organization was, in general terms, the control of exports in accordance with the policies laid down by the War Trade Board; its efforts were in large part devoted to the development of a procedure that would permit a care- ful examination of all applications for license to export and at the same time permit quick action upon the several thousand applica- tions that were received daily and thus occasion as little delay as possible to business houses engaged in the export trade. The export policy of the War Trade Board may be described briefly as follows: (1) Control of exports in the interest of conserving essential war materials. (2) Embargo on exports to border neutrals, or rations to them in accordance with definite agreements. (3) Rations to the neutrals or to Allies by agreement. (4) The free movement of essential supplies to the Allied Gov- ernments. (5) Control of exports to neutrals in some cases for bargaining purposes. (6) Rectification of unfavorable tonnage or trade situations with neutrals. These policies and their results have been described in detail in the earlier sections of this report. To make them effective the Bu- reau of Exports organized a Division of Trade Advisers and a Divi- sion of Trade Distributors, the former organized on commodity lines, the latter by countries. The trade advisors.— The chief function of the trade advisers was to make effective the policy of the Board with regard to conservation. They were in most cases men withdrawn from commercial pursuits and were familiar with the conditions of production and supply of the commodities with which they dealt. The groups of commodities controlled by these men, as shown on the organization chart of the Bureau of Exports, was: (1) Caustic soda and moving-picture films. (2) Chemicals (two trade advisers). (3) Cotton and silk. (4) Coal and oil. (5) Electrical and paper-making ma- chinery, etc. (6) Food, fodder, live stock, etc. (7) Gold, platinum, and precious stones. (8) Hardware, arms, ammunition, etc. (9) Hemp, jute, linen, sisal, flax. (10) Leather. (11) Machinery, machine tools, etc. (12) Mining machinery, etc. (13) Rubber, mica, asbestos. (14) Iron and steel. (15) Tin. (16) Wood and paper. (17) Wool and certain other animal hairs. 288 EEPOKT OF THE WAR TEADE BOARD. The trade advisers were charged with the duty of ascertaining the amounts of the various conserved commodities under their con- trol which might be allowed for export. The available supply and the exportable surplus of each commodity was determined from sources within the War Trade Board and from other governmental agencies. In many, probably in the majority of cases, the quantity available for export trade was decided by an outside organization. Thus the Food Administration decided all questions with reference to the export of highly conserved foodstuffs; the Fuel Administra- tion "rationed" the trade adviser for coal and oil with 6,000,000 tons of coal for export; the War Industries Board decided like questions for the many commodities represented by its organization. The essence oi the entire policy of control over the export of con- served commodities was the full and free interchange of informa- tion between all interested bodies. The trade advisers thus became the focal point for export trade at which the policies of these various groups united. They were thus brought into contact with the agencies named above, with many branches of the War and Navy Depart- ments, such as Signal Corps, Medical Service, Aircraft Board, with such trade organizations as the Textile Alliance and the American Iron and Steel Institute, and with the representatives of the Allied Governments. The export conservation list which was first published on Septem- ber 17, 1917, and which was revised and extended continuously there- after, until in the latter part of 1918 it contained about 1,000 items, was the immediate concern of the trade advisers and represented their announcement to the public from time to time of the status of the export conservation program. This list was in constant process of modification as the development of war activities grew and changed from day to day. As a corollary to the work of export conservation, the trade advisers were given another function-^the distribution or allotment of rationed commodities. The problem of allotment had two phases : First, the distribution among American exporting firms of a trade diminished by the great reduction in the quantity to be exported; and, second, the allotment of these decreased quantities among the various countries anxious to buy in such a way as to supply their necessary requirements and at the same time further the allied cause in every possible manner. Exports of caustic soda and foodstuffs were allocated among American firms. The methods employed and the results accom- plished are described in some detail in Part III, Section III, and the questionnaire used for caustic soda is reproduced in Exhibit VIII of the Appendix. Allotments of conserved foodstuffs to the various countries and colonies dependent upon the United Stales for their supplies are also discussed in Part III, Section III. As indications of the results obtained by the various trade ad- visers, the following instances are of interest. It early became necessary to take steps to retain in the United States a supply of steel plates adequate to meet the essential demands of our program of military and naval construction. The trade adviser in charge of steel withheld all export licenses for steel plate except that des- tined for war purposes. This action resulted in the release of a REPORT OF THE W&B, TRADE BOARD. 289 number of rolling mills for use in the production of steel plates required by the shipbuilding program of the United States. The fuel situation furnished another illustration of the prob- lems confronting a trade expert. The Bureau of Transportation had issued regulations controlling vessels which obtained bunker fuel and ships' stores at ports of the United States. It seemed desirable that the Bureau of Exports should prohibit the exporta- tion of coal to a foreign country unless assurance was given that this coal would be used only to bunker those vessels carrying ap- proved cargoes. Therefore the trade adviser in charge of coal and fuel oils took steps to insure the shipment of coal from this country only under proper agreements with respect to its use at the point of destination. It was recognized more and more by the different departments of the Government that the Bureau of Exports was a convenient me- dium through which to accomplish promptly certain results for which no other agency existed. The trade adviser, on account of his con- stant contact with individuals in the War Department and the Navy Department, was often in a position to ascertain their needs, and on account of his familiarity with proposed shipments for ex- port was able to assist these departments m securing prompt delivery of important quantities of commodities of which the visible supply was limited. For example, at one time the War Department desired to secure immediate delivery of a considerable quantity of phenol, and the trade adviser was able to furnish information as to the location of about 6,000 tons, which had been manufactured for ex- port. By withholding the licenses for export, this phenol was re- tained in the country for the use of the War Department. On certain occasions it seemed desirable to withhold American paper and printing supplies from anti-American newspapers in foreign countries and to facilitate the publication of pro-American or pro- Ally papers bv permitting shipments of these commodities to them. To insure deliveries satisfactory to the Governnient, the Bu- reau of Exports secured guaranties from shippers in this country in regard to both the consigriee and the use of these supplies, and fur- nished sufficient information in regard to each consignment to enable American officials abroad to enforce the guaranties given by shippers. The trade distributors. — Aside from the matter of conservation the control of exports was largely a matter of specific regulation af- fecting exports to separate countries or groups of countries. Thus there was at one time an embargo on exports to the northern neutral countries. This was afterwards changed in accordance with agree- ments entered into between these countries and the War Trade Board, and they were rationed with definite quantities of conserved commodities and were allowed to receive as well certain nonessen- tial commodities in so far as available tonnage permitted. The West Indies, Mexico, and Central America were subject to special regula- tions as to rationed and other commodities ; likewise Spam, the Dutch East Indies, Africa, and the allied countries. The increasing variety and complexity of these various regulations necessitated the formation of a group of men organized on a country basis. The Division of Trade Distribution, with trade distributors to pass upon all applications for licenses to export to particular 103584—20 ^20 290 REPORT OF X±iJii WA±t x±iAUJS cua-tiu. countries, was therefore organized in December, 1917. On November 11, 1918, the following countries or groups of countries were repre- sented by trade distributors : 1. Canada ; British, Frencli, and other West Africa. 2. Argentina, Uruguay, Paraguay, Brazil. 3. Great Britain, France, Italy, Belgium. 4. Greece, Denmark, Iceland, Faroe Islands. 5. Russia, Finland, Manchuria, Korea. 6. Holland and her colonies. 7. Japan, China. 8. Spain, Portugal. 9. Cuba. 10. Mexico. 11. Switzerland. 12. Norway. 13. Sweden. Part III of this report discusses at length the regulations of the War Trade Board with respect to exports to the various countries of the world and the corresponding impoit control by the same coun- tries. It was the duty of the trade distributors to see that these regu- lations were observed. Thus, for example, the procedure governing shipments to the West Indies and West Africa was developed by the War Trade Board in cooperation with representatives of these sev- eral countries, and the foodstuff allotments for them were fixed by a trade adviser, but the trade distributors for these countries examined license applications with reference to allotments and determined whether the requisite authority for the shipment had been granted by the control agency in the country of destination. Again, exports to private firms in allied countries required vise by the appropriate allied war mission in the United States, and the trade distributor for the allied countries reviewed each application to see that all steps in the procedure were satisfactorily consummated. The function of the trade distributors in maintaining export con- trol is well illustrated in the case of Spain. Pending negotiations between the War Trade Board and Spanish representatives for fur- nishing the American Expeditionary Forces in France with certain needed supplies of food, clothing, leather goods, etc., it was the policy of the Board to withhold all licenses for export of com- modities urgently needed by Spain. Appropriate instructions from the Board to the trade distributor for Spain accomplished the desired result. As the preceding pages indicate, the basic functions of the Bureau of Exports were administered by the trade advisers and trade dis- tributors. Their duties were distinct, and yet the fullest cooperation between them was necessary and did exist. The following is an example: The Signal Corps at one time decided that the available supply of niahogany suitable for the manufacture of aeroplane pro- pellers was inadequate for the necessities of its program. The trade adviser for lumber ascertained that there was a considerable amount of suitable mahogany in the United States, most of which had been purchased by the British and French from importers, dealers, and manufacturers in this country at prices higher than seemed reason- able. It was also ascertained that certain stocks had been withdrawn from the market by dealers in anticipation of later sales at still higher prices. By suspending the export licenses already issued for REPORT or THE WAR TRADE BOARD. 291 proposed shipments to England and France, the Bureau of Ex- ports was able to bring about a community of interest between the War Department, Navy Department, and the Allied Governments and the importers, manufacturers, and dealers in mahogany. The trade adviser in charge of mahogany was able, by cooperation with the other trade advisers of the bureau and with the trade distributor in charge of Honduras, to obtain consideration of the question of supplying Honduras with such commodities as were required to stimulate the production of a requisite amount of mahogany. THE DEVELOPMENT OF LICENSE PKOCEDUEE. THE COOKDINATION OF LICENSE PROCEDURE WITH THE CUSTOMS SERVICE. The requirement of licenses for export made necessary an imme- diate contact with the customs division of the Treasury Depart- ment, since all export shipments were made through the customs. An arrangement was concluded with the Treasury whereby no ship- ments requiring license from the War Trade Board would be passed by the customs until all the regulations of the Board had been com- plied with. Export licenses were issued upon the basis of approved applications submitted by consignors. They were not required in case of shipments to noncontiguous possessions of the United States. The shipment of coin, currency, and bullion was beyond the jurisdic- tion of the War Trade Board. Export licenses were of two kinds : (1) Individual licenses. (2) Special licenses, identified by the symbol " EAC." To obtain an individual export license the consignor submitted to the Bureau of Export's, or to one of its branches, an application blank. Form X, with entries showing : Date. Applicant's reference number. Consignor. Approximate number and kind of packages. Commodity. Weight. Value of each item. Consignee abroad. Ultimate destination. Eeserve spaces were provided on the blank for entry by the issuing office of: Application nurnber. Disposition. Date. Expiration date. War Trade Board commodity code number.' Export licenses were prepared in triplicate, the original being issued to the consignor, the duplicate being forwarded to the Division of Tabulation and Statistics, and the triplicate being filed. Each license bore a serial number identical with the serial number on the application therefor. ' In the case of certain commodities and of certain countries " supplemental informa- tion sheets " were also required to be attached to the application. These might or might not provide for the entry of the War Trade Board commodity code numbers. 292 REPORT OF THE WAR TRADE BOARD. The form provided for the following information : Date. Expiration date. Applicant's reference number. License number. Consignor. Approximate number and kind of packages. Commodity. Quantity. War Trade Board code number. Value. Consignee. Ultimate destination. On the export license the quantity might be less than that shown on the application, since the Bureau of Exports had power to limit the amount of any commodity licensed. There might also be an occasional unimportant variation in the description of the com- modity. Otherwise the entries of the foregoing information were identical on the two forms. When a licensee was ready to ship, he submitted to the collector of customs a " shipper's export declaration " in quadruplicate with entries as to : Consignor. Place of original shipment. Carrier or vessel. Port of exportation. TJltimate destination. War Trade Board export license number. Date of expiration. Marks and numbers. Number and kind of packages. Commodity. War Trade Board code number. Quantity. Value. He also submitted his export license,^ with entries, in cases of par- tial shipment, on the reverse showing: Marks and numbers. Description of the partial shipment. Export declaration number. Quantity. Value. Port of exportation. If the first shipment covered the whole amount allowed by the license, the license was retained by the collector ; otherwise it was re- turned to the licensee. In either case the collector was supposed to indorse the statement on the i'e\ eise side, but in practice this rule was not followed consistently. He also indorsed the export declara- tion to the effect that the proposed shipment was within the limits of the license. He retained the original and one copy of the declaration and delivered the other two copies to the licensee, one for the steam- ship company and the other for the customs inspector at the dock. Upon receipt of the customs inspector's copy, the collector trans- ferred information as to any short shipments or other variations noted thereon to the two copies which he had retained. One of these copies, and also the original license, if it had been surrendered to him, he forwarded to the Division of Tabulation and Statistics. REPORT OF THE WAR TRADE BOARD. 293 For subsequent shipments under a partially used license the same procedure was followed. COORDINATIO?; WITH THE EAILEOAD ADMINISTRATION. A serious problem arose during the M-inter of 1917-18 from the fact that shipments intended for export were made by rail from in- terior points to ports of exit and upon arrival were refused licenses for export. The railroad congestion during the winter was due in large part to the fact that shippers had started freight moving to the seaboard on the chance that they could get storage and steamship space. To meet this situation, the Eailroad Administration issued a circular on April 25, 1918, instructing shippers that it would thereafter be necessary to present to the railroad an export license number before securing rolling stock for shipments intended for ex- port,. and this number must appear on the waybill. Exceptions were made in cases where storage was ample at ports, or where it was the^ custom of the trade, as with grain and flour, to move commodities to seaboard for storage and grading, without knowledge whether the goods would be sold in domestic or in foreign markets. Further exceptions included all commodities moving under special (RAC) licenses. By announcement of April 27, 1918, the War Trade Board adopted this regulation of the Eailroad Administration as part of their lules and regulations, at the same time calling special attention to the provisions that the license number should appear on the waybill and that the license or partial shipment authority must be in the hands of the collector of customs at the port of exit on or before the arrival of the freight at port. INDIVIDUAL LICENSES AND RAC LICENSES. The foremost duty of the Bureau of Exports was to control our outgoing trade in such a way as to lead to the most successful prose- cution of the war. This work, as indicated heretofore, was in the hands of the trade advisers and trade distributors. The problem of the bureau, as a matter of procedure, was to make this control effec- tive and at the same time pass the thousands of applications for license that were presented with as little delay and as little incon- venience to the public as possible. It was a matter, therefore, of sim- plifying procedure and of expediting the consideration of applica- tions. Where it was necessary to control exports for the purpose of making effective the policies of the War Trade Board, an individual license was always required for the shipment of a commodity. These cases included commodities on the conservation list. They included all commodities to certain destinations where enemy trading was probable, or where enemy advantage might otherwise be served, or where control was being exercised for bargaining purposes. Other cases included some commodities, but not all, to certain countries. A list of the possible instances where individual licenses were neces- sary at a specified date would not be true for a later period, since conditions were changing constantly and the requirements changed accordingly. In the case of conserved commodities, or of countries such as the European neutrals, where the need for effective control was great, applications for license were forwarded to Washington and license 294 REPORT OF THE WAR TRADE BOARD. was issued by the Bureau of Exports. In other cases the branch oiEces of the "War Trade Board were given authority to issue licenses without reference to Washington. For this purjjose they were fur- nished with sets of consignor, consignee, and commodity cards as used in the Division of Eegistry and Issuing. Special or EAC licenses were designed to facilitate the exporta- tion of commodities the licensing of which was a formal compliance with Title VII of the espionage act and the President's proclama- tions thereunder, and did not require reference to conservation policy or to the probability of enemy advantage. They were blanket au- thorizations to collectors of customs to pass certain shipments by indorsement of the proper EAC license number on the shipper's export declaration. AH goods covered by United States Government bills of lading and forwarded on United States transports came Avithin this class, as well as shipments by the Department of State, United States diplomats, and various relief organizations, such as American Eed Cross, Young Men's Christian Association, Salvation Army, and Knights of Columbus. The Traffic Executive attended to the shipment of material purchased in the United States by the Al- lied Governments and all such shipments were made under EAC license. LICENSE PEOCEDTJRE WITHIN THE BtJREAT- — THE WORK OP THE EEGISTRY-ISSriNG DIVISION. The work of the Eegistry-Issuing Division fell naturally into seven parts: (Ij Eecording the applications for export licenses sent directly to Washington or via the branch offices and returning for correction those improperly prepared. (2) Eouting the applications for the approval or disapproval of the trade advisers and others. (3) Approving or disapproving certain applications by means of ruling cards, according to information furnished by trade advisers and others. (4) Checking applications to see if they were properly approved or disapproved, and issuing licenses or refusals. (5) Keeping an accurate record of the applications received and disposed of. (6) Answering questions with respect to the status of appli- cations. (7) Eecording, routing, and filing application correspondence. The work of the Eegistry-Issuing Division was carried on through certain well-defined sections, the work of which may be more clearly understood by considering the routing of an application from the time of its receipt until its final disposition. Examming section. — From the incoming mail room the application was sent directly to the examining section, where each application was read to find out — 1. Whether a license was necessary for the shipment in question. 2. Whether the application was p"ro]5erly filled out. If the shipment did not require a license, or if the application was not properly filled out. it Avas returned to the applicant with a let- ter to that effect. Complete applications were stamped with the date of arrival, numbered, and sent immediatelv to be carded. The REPORT OF THE WAR TRADE BOARD. 295 examining section read approximately 3,500 applications each day, 8 to 10 per cent of which were returned to the applicant because they were improperly filled out. Carding section. — The carding section received the complete appli- cations from the examining section and from them made in tripli- cate on a 3 by 5 inch card a record of the important features of the apphcation. (See Exhibit A.) These cards were furnished in strips of five, in three colors, and were eventually filed in the fol- lowing mariner : (1) Numerically (white). (2) By consignor's name (yellow). (3) By consignee's name (blue). The typists doing this work averaged about 300 applications each per day. The cards were sorted into their three classes, as above mentioned, and sent to the filing section, and the applications were sent to the distribution section. Distribution section.— It was the duty of the distribution section— (1) To see that the applications were properly routed to those interested. (2) To see that the proper approvals appeared on the appli- cations before they were sent to the licensing room. The applications which had been examined and carded at the A-ari- ous branch offices were distributed in the same manner as those ex- amined and carded in Washington. The distribution section was the central distributing point, from which applications were divided — (1) By countries (except applications covering shipments to England and France and their possessions) for the War Trade Intelligence Bureau. (2) By commodities for the trade advisers. (3) By countries in a different grouping for the trade distribu- tors. (4) In the case of applications for England, France, and Italy in a still different grouping for the War Industries Board and war missions. Tlie distribution section also examined the applications upon their return, and checked them to see that all the necessary approvals appeared, and then sent them to the licensing section. Ruling card section. — The ruling card section received all applica- tions and granted, refused, or referred the same as to the character of the consignee and consignor, and as to the conservation of the commodity in accordance with instructions contained on the ruling cards. (See Exhibits B, C, and D.) Refusing section. — The refusing section handled all applications which were refused, and attempted to catch any inconsistencies in these refusals, and to see that the applicants were given the proper reason for refusals. Refused applications were then stamped " re- fused " and sent to the licensing section, where the refusals were issued in three copies, the original going to the shipper, the duplicate to the Bureau of Tabulation and Statistics, and the triplicate remain- ing attached to the application. Licensing section. — The licensing section received approved appli- cations from the distribution section and issued a license in triplicate. The application with the three copies of the license attached was sent 296 EEPOKT OF THE WAE TEADE BOARD. to the auditors, and then to the signing section. The original of the license was sent to the shipper, the duplicate to the Bureau of Tabula- tion and Statistics, and the triplicate remained attached to the appli- cation, and was filed with it. The typists doing this work averaged 160 licenses a day, and the section averaged. 2,500 licenses a day. Signing section. — The signing section received the applications with licenses or refusals attached ; here the original of the license was signed, sealed with the seal of the War Trade Board, put in an envelope, and sent to the mail room The original of the refusal was treated in the same manner except that it was not sealed. The dupli- cate copies of the license or refusal were detached and sent to the Bureau of Tabulation and Statistics, the triplicate copies initialed and sent to the filing section. Although the licenses and refusals were checked in the licensing room, they were given a final inspection before being sent out, especial attention being given to see that they were sent to the proper address. Filing section. — ^The filing section received the three cards written in the carding section and filed the first numerically, the second by consignor's name and the third by consignee's name. The applica- tions, together with the triplicate copies of the licenses or triplicate copies of the refusals, were filed numerically. Approximately 75,000 consignors' cards were on file at the end of 1918. The cards under each consignor's name were subdivided by commodities and countries and further subdivided chronologically. Consignees' cards were divided by countries with the consignees in each country filed under it alphabetically. These cards were sub- divided by commodities and further subdivided chronologically. There were on file at the same time approximately 1,080,000 appli- cations, and three record cards for each application. These cards enabled the tracing section to answer questions regarding applica- tions which had been filed. Tracing section. — Inquiries were received at the rate of 1,000 a day from all parts of the War Trade Board with respect to applica- tions. Most of them, however, came from — (1^ Trade advisers and trade distributors. (2) Reception room. (3) Bureau of Branches and Customs handling telegraphic in- quiries. Many of these inquiries were extremely vague, but in most in- stances, if the application concerning which information was sought was on file, the tracing section could give its status. Coding section. — CJoselj' related to the work of the Registry- Issuing Division was the work of the Bureau of Tabulation and Statistics, particularly with respect to inserting on the application the code number of the commodity in question. Every article of commerce was given an individual code number through an elaborate code system, and these numbers were used on applications, licenses, refusals, and shippers' export declarations for statistical purposes. At the time of the armistice the practice followed was to insert the code numbers after the applications had left the hands of the distribution section and were destined for the trade advisers. In this way one or more of the coders worked on a particular set of commodities and'became familiar with those commodities and con- sequently more accurate. REPORT OF THE WAR TRADE BOARD. 297 Correspondence section. — The correspondence section received all correspondence relating to the Bureau of Exports. The letters were carded and recorded and stamped with the date of receipt. The substance of the correspondence was placed upon the card, also the name of the person to whom the correspondence was to be charged. The correspondence was then routed to the proper individual for his attention. "When returned it was filed chronologically under the name of the writer, together with any copies of correspondence writ- ten by the individual to whom the same was charged. When correspondence was received by an individual who wished to refer the same to some other individual a reference charge card was made out by that individual and returned to the correspondence section so that at all times it was possible to locate any particular correspondence. In order to understand more clearly the various channels through which an application passed there is attached a chart showing the usual routing of an application. (See Exhibit E.) This discussion of the Eegistfy and Issuing Division approximates conditions existing on November 11, 1918. Exhibit A. Dan 44823 180 11/10/18 1,936,478 Allen, Edgar & Co., Ltd., 13-21 Park Row, N. Y. C. Filing Cabinet Sections ],800# $650.00 Denmark, Copenhagen, Dp Danske Vin-Og Konservesfabriker, 11/10/18 M Exhibit B. WHEAT FLOUK. daiiada & Newfound- land 1-A Other British American Possessions 2-A Mexico 3-A- Central America (except British Honduras 4-A Cuba 5-A Dominican Rep. and Haiti 6-A G means Grant, French American pos- sessions 7-A R means Refuse. Dutch American pos- sessions &-A A means Refer to trade adviser. Argentina 9-A Brazil 10-A Chile 11-A Peru 12-A Uruguay 13-A ^ , , ,.j, s Venezuela 14-A Control (if any). Other America 15-A Belgium 16-R Denmark 17-R France 18-'A Greece 19-R Holland , 20-R Italy ^l-A Norway 22-R Portugal 23-R Spain 24-R 298 KEPOKT OF THE WAR TRADE BOARD. Sweden 25-R (Components. Switzerland 26-R Russia in Europe 27-R United Kingdom 28-A Otlier Europe 29-R British India 30-R Britisli China 31-R Other China 32-R Japan, etc 33-R Russia in Asia 34^11 Other Asia 35-R British West Africa- 36-R Other British Africa- 37-R French Africa 38-R Other Africa 39-R Australia and New Zea- land 40-R Straits Settlements 41-R Dutch East Indies 42-R Other Oceania 43-R ExhiUt C. Name of consignee. Control. Refuse Smith Trading Company, C 19009 Madrid, Spain. Note. — Letter C means reason for refusal. Exhibit D. Name of consignor. John Doe, Passaic, New Jersey. Control. 16122 Grant ExUiVit E — Report of (ippJications passing over the consignor, consignee, and commodity cards from Oct. 19, 1918, to Jan. 4, 1919. Commodity. Consignor. Consignee. Date. Number of appli- cations. Percentage granted and refused. Number of appli- cations. Percentage granted and refused. Number of appli- cations. Percentage granted and refused. Oct 19, 1918 43, 144 48,228 37, 799 36,371 32,695 28, 814 21,446 16,948 13,349 12,666 10,647 13,285 30.1 28.4 28.3 33.2 26.9 29. S 35.4 42.7 58 75 84 Oct 26 1918 Nov. 2, 1918 Nov. 9, 1918 Nov. 16, 1918 Nov. 23, 1918 Nov. 30, 1918 Dec 7, 1918 10, 243 12,447 9,862 7,178 8, 254 27 10 7Q« 12.8 22 21 28 28.2 12,361 9,970 7,026 6,817 Dec. 21, 1918 22.5 Dec 28, 1918 21 Jan. 4, 1919 - 32 KEPORT OF THE WAR TRADE BOARD. 299 VJOLATIO^'S OF THE EEGULATI0^'8 OF THE BUREAU OF EXPORTS. The work of dealing with viohitions or evasions of the reguhitions of the Bureau of Exports was controlled by the bureau until a Viola- tions C'oninnttee was established in September, 191.S, to deal with all violations of export, import, and bunker regulations. A record of cases of export violations from April 8 to June 1, 1918, shows re- ports of 86 attempts to evade or violate the law or the rules of the War Trade Board. After the Violations Counnittee began its work it reported that the majority of violations calling for action involved the rules affecting exports. These evasions may be broadly classified as follows: (1) Attempts to make shipment without securing export license, by splitting same so as to take advantage of the $100 privilege. (2) Alteration of export license. (3) Shipments differing in quantity and value from the license. (4) Shipments in which the consignee named is not the ulti- mate consignee. (5) Shipments in which the conuuodity is not the same as that for which the license was granted. {(>) Shipments by registered mail of commodities on the con- servation list, for which export license had not been se- cured. (7) Shijjment of commodities on tiie con-er^•ation list under export declarations stating that no export license is re- quired. (b) Shipments consigned to firms on the enemy trading list. (!•) Slii2:)ments on domestic bills of lading of conunodities in- tended for export. (10) Violations of the regulations governing the granting of licenses for tin plate. (11) Attempted sale of export licenses. (12) Attempts to export a conserved conunodity under a false classification and thus evade procuring a license; e. g., scrap iron was exported as secondhand car wheels; wire rope, as galvanized wire. A few examples are given herewith which typify the cases of ex- port A'iolations which came before the ^^iolations Committee of the War Trade Board : A certain corporation applied for and secureci an export license for leather belting, a highly conserved article, representing that it had already been manufactured and stamjDed with a trade-mark which made it unfit for domestic use. The license was thei'efore granted by a special vote of the Contraband Committee. "\^nien it was sul> sequently discovered that the goods had not been manufactured at the time of the application, an opportunity was offered for explana- tion, which resulted in a repetition of the misrepresentation that the goods had been ready for shipment, and as a r-esult the issuance of licenses to this firm was suspended during further investigation. A request that a representative of the company call on the Board was ignored, and finally, after a lapse of about a month, instructions were given by the committee to refuse licenses upon all applications of the company in question. It was then learned that about 1,200 300 EEPOBT OF THE WAR TRADE BOARD. applications were pending, and in expectation that the matter would be adjusted us soon as licenses were refused, orders were given to issue refusals on only 50 applications, and when that brought no result, orders were given about a week later to issue refusals upon 100 applications. As a result of this, the president of the company called upon the committee, acknowledged the fault, and explained that the matter had not been called to his attention until the refusals had come to his office ; that the employee who had been responsible for the misrepresentation had been discharged, and that steps had been taken to prevent any further violation of law or deception of the Board. As a result of this interview the order directing that licenses be re- fused to the company was rescinded. The president of the corpora- tion admitted the entire propriety of the action of the committee, spoke with considerable feeling of the consideration shown to the company under circumstances of unquestioned guilt, and in a subse- quent letter written upon his return home, reiterated his feeling of satisfaction at the treatment his company had received. Another firm, under a license to export tomatoes, exported tomato jjaste. The offense was admitted and licenses were thereupon refused. After the refusal had continued for three or four weeks, a represen- tative called upon the committee and admitted his guilt, for which he solely was resiDonsible, but contended that he had not realized at the time that the departure from the language of the license was a serious matter. He gave assurance that there would be no further violations, stated that his business had suffered through the action of the com- mittee, and expressed a willingness to pay a fine sufficiently large to deprive him of the profits which he had realized on the transaction. The order to refuse licenses was thereupon rescinded. In a similar case the exporter offered to send a check for $500, representing about twice the amount of his profit, to the Eed Cross, provided the committee would take no action. The offer to accept money for the Eed Cross was refused. The exporter therefore declared his intention to send a contribution to the Eed Cross ir- respective of any arrangement or expressed desire on the part of the committee. In another case an application was filed to export flour to Guade- loupe. The application was refused because not accompanied by an import license issued by the governor of Guadeloupe, which was at that time required. A new application was then filed, accompanied by an import license. Examination disclosed that the import license had been changed by adding a cipher to the statement of pounds for which it had been issued, the quantity being thus raised from 14,882 pounds to 148,820 pounds. The application was for the exportatioii of about 137,000 pounds. Through the secret service an investiga- tion was made, which showed that the president of the company had conspired with two other persons to change the import license for the purpose of securiirg the export license. All licenses were thereafter refused to him. The matter was brought to the attention of the Department of Justice and indictments were secured. Three firms arranged, upon export licenses of tapioca to France, to make shipment instead to Spain. Investigation disclosed that this was accomplished by deceiving the customs authorities. Licenses were thereafter refused to all three firms. REPORT OF THE WAR TRADE BOARD. 301 Examination of the correspondence tiles of a certain person sliowed that he had advised the representative in this country of a firm of Germans m a neutral country, before the trading with the enemy act had been passed, that such an act was impending and that it would be advisable for the firm to adopt a cover name, so that exports might be made to them ; .that a co\er name was accordingly adopted and exports made through the intervention of this person. His name was therefore placed upon the confidential consignors' list. In another case a certain company had secured its allocation for exports of caustic soda by a misstatement regarding its shipments during the fiscal year ending June 30, 1917. Over 30 shipments had been niade under licenses issued by the Board on the strength of this misstatement. An investigation of the company's transactions was made, from which it was learned that their gross profits had been in the neighborhood of $100,000. It was also learned that the misstatement had been made by the president of the company. A reorganization of the company was demanded which would "elimi- nate from executive duties the president and all persons in anv wav connected with the deceit which had been practiced on the Board This demand was fully complied with. In connection with the re- organization, and with the assistance of the Department of Justice, to whom the matter had been referred, the company made an agree- ment with the United States attorney whereby it undertook to pay damages to the United States of America in the sum of $100,000. A substantial part of this sum was paid, and the balance is evidenced by notes which were delivered to the United States attorney. MODIFICATION OF PROCEDURE FOLLOWING THE ARMISTICE. In harmony with various relaxations in the restrictions relative to particular commodities, and respecting shipments to particular coun- tries, that were determined upon from time to time after the armis- tice became effective, changes designed to keep pace with the relaxa- tions were made in the procedure for obtaining licenses and the shipping procedure from United States ports. The purpose was to facilitate proposed exportations of unrestricted commodities to coun- tries with respect to which trade restrictions had been removed. The device principally resorted to was the special type of license mentioned before in this report as having borne, as a distinguishing mark in each case, the letters " EAC " in connection with the serial number of the license. Relaxation hy means of RAC licenses. — These special EAC licenses were of four general classes: (a) Those issued to cover exportations for military and other war purposes, and issued directly to various governmental agencies, such as the State, War, and Navy Depart- ments, the United States Shipping Board, and the so-called Traffic Executive of the British, French, and Italian War Missions; (h) those issued to organizations like the Eed Cros^, the Young Men's Christian Association, the Knights of Columbus, and the Salva- tion Army for shipments of supplies to their forces overseas; (c) those issued to cover exportations of an ordinary commercial char- acter by persons or concerns for their private accounts, and (d) those issued to cover exportations of a noncommercial character, such as exportations of personal effects, passengers' baggage, household 302 BEPORT OF THE WAR TRADE BOARD. goods, gifts by relatives and friends to members of the American Expeditionary Forces, supplies for diplomatic and consular officers of the United States and friendly countries, etc. This device is one that had been adopted early in the course of tlie operations relative to export control and had been found to be prac- ticable. Eeferring particularly to the kind of special license that was issued to cover exportations of an ordinary commercial char- acter : In theory it consisted of a general license, issued through the Customs Division of the Treasury Department, or through the Post Office Department, as the case might be — this, of course, depending upon whether the shipments intended to be covered in any particular case were to be by freight or express or Avhether they were to be by mail — w hereunder exportations of the commodities or class or classes of commodities specified in the license might be permitted without the usual application and licensing formalities when the shipment con- templated was destined to a counti-y therein designated. In neither of these cases was the exporter required to obtain from the Board an individual license. When the shipment was to be by freight or express, the shipper was required only to present to the collector of customs at the port of exit four copies of the usual form of shippers' export declaration, and if the goods, on examina- tion, were found to be covered by an EAC license, the shipment was passed by the collector by indorsement of the RAC license number on the shipper's export declaration. In case of shipments by mail, the procedure was equally simple. Postmasters through- out the country were authorized to accept for export packages of goods coA^ered by the appropriate RAG license when the shipment was in accordance with the postal regulations, when it was not in violation of the trading with the enemy act, and when the pack- age was indorsed with the RAC license number, the name and address of both consignor and consignee, and a statement of the con- tents of the package. The situation by the end of May, 1919, so far as commercial ship- ments by freight or express were concerned, was that all inconven- ience formerly attached to obtaining individual export licenses had been eliminated when the goods were consigned to any country in North, Central, or South America, the West Indies, Oceania, or Brit- ish, French, Italian, Belgian, and Japanese possessions throughout the world, also when destined to any country in Asia, except Arabia and Turkey in Asia, or when destined to any count rv in Africa and any country in Europe, except Russia, Denmark, and Sweden, the enemy and ally of enemy countries and certain countries formerlv dominated by their military forces, such as Finland, Poland, the Baltic Provinces, the Adriatic and Black Sea ports, the territory embraced in the new State of Czecho-Slovakia and that embraced in the territory known as Jugo-Slavia. The onh- restricti(;6 tons during the months of August and September, and in September a ruling was issued permitting 25,000 tons to be licensed for im- portation during the last three months of the year. After December 14, 1918, shipments might be made without restriction from coun- tries of origin. From these 8,333 tons a month the requirements for the production of goods for the Associated Governments were first met and the remainder was allocated among manufacturers of rubber products on the basis of their consumption during the calen- dar year of 1917. This restriction cut the amount received by the manufacturers for their commercial products more than 50 per cent. In order that their foreign competitors might not be able to take advantage of this fact, the War Trade Board passed a resolution revoking all outstanding licenses for the importation of inanufac- tured rubber goods as to ocean shipment after Jime 25, 1918, and prohibiting the issue of any more import licenses for these goods after that date. Linoleum was on List 1 of restricted imports, and licenses for its importation after April 14 could be issued only for shipments by fail from Canada and Mexico or as back haul from convenient iDorts > See pp. 103-108. 310 REPORT or THE WAR TRADE BOARD. in Europe. The War Industries Board succeeded in securing from the linoleum manufacturers an agreement to reduce their operations 40 per cent. This reduction would reduce the demand for flaxseed or linseed and thus conserve tonnage. To protect the linoleum manufacturers from foreign competition, the War Trade Board on June 24 passed a resolution that no more licenses for the importa- tion of oilcloth or linoleum should be issued and revoked all out- standing licenses as to ocean shipment as back haul from Europe after July 3, 1918. By a ruling of the War Industries Board, manufacturers of cream separators were limited to the manufacture of four specified types. To permit the importation of cream separators of a type which the American manufacturers were prohibited to manufacture would ob- viously be unfair. The War Trade Board on October 1, 1918, passed a resolution whereby no further licenses were to be issued for the importation of cream separators of types not permitted to be manufactured in the United States. (10) The power of restricting imports made possible the conserva- tion of tonnage: (a) By decreasing the total quantity of certain goods brought into the country; {h) by causing a reduction in the length of haul; (c) by causing goods to be imported in sailing vessels or small vessels unsuitable for trans-Atlantic transportation, thus releasing larger ocean-going vessels for trans- Atlantic service; and (d) by stimulating the importation of materials in their more concen- trated form.^ From February, 1918, to the signing of the armistice this phase of import control became increasingly important. The first official embargo on imports was a ruling effective January 28, 1918, to the effect that no licenses to import wolfram from Portugal should thereafter be granted. The policy of restricting imports brought about incidentally cer- tain results which were not the main objects of the restrictions. (1) So far as the importation of luxuries was restricted, to that extent funds were conserved whicli might be utilized for the purchase of Government bonds. (2) By restricting the amount of raw materials which could h^ importecl into the country for purposes other than the prosecution of the war, labor and capital were conserved either for direct mili- tary pursuits or for industrial undertakings which were engaged in Government work. (3) Bj' restricting the importation of certain foodstuffs from European countries the United States tended to turn such commodi- ties into the markets of the Allies and into the hands of her own purchasing agents in Europe. If the articles were nonessential or constituted a surplus, the tendency of the restriction upon their im- portation was to shift the three factors of production — land, labor, and capital — which were engaged in creating such goods into the pro- duction of commodities urgently needed in Europe. Thus, although the main motive of such restrictions may have been to conserve ton- nage through lessening our imports and indirectl}' our exports also, economic forces were set in action which ultimately would have ac- complished much more than the conservation of tonnage. » See pp. 122-136. REPORT OF THE WAR TRADE BOARD. 311 List of restricted imports No. l^—On March 23, 1918, the list of restricted imports No. 1 was published. The list enumerated 82 Items lor which import licenses would be refused for all shipments on and after April 15, 1918, except under the following conditions- {a) When coming by rail from Mexico or Canada when the goods m question originated in those countries or in others xJ^^"^ which such goods were being licensed for import. (0) When coming as a return cargo from European points and then only — (1) Wlien coming from a convenient port, (2) when loaded without delay, and (3) when the importation from Europe was not specifically prohibited. • Before these restrictions went into effect the following European ports were announced as being convenient ports from which back hauls could be made : British ports : Glasgow, Liverpool, Manchester, Bristol, Channel ports Fowey, London, Hull, Newcastle, and Leith. French ports: Havre, Nantes, St. Nazaire, Cette, Marseilles, Brest, Bordeaux, La Palliee. Any Spanish or Portuguese port, including islands in the Atlantic belonging to these countries. By a ruling of the Bureau of Imports June 26, 1918, this provision regarding Portuguese and Spanish islands was modified to read " adjacent islands belonging to these countries in the Mediter- ranean Sea or in the Atlantic Ocean north of the Grand Can- aries." Any West Italian or Sicilian port. (On June 26 ruling of Bureau of Imports to effect that this included ports in Sardinia and other Italian islands off the west coast of Italy.) The chief end in view in selecting the commodities placed in List No. 1 was the conservation of tonnage. No attempt was made to draw a line between luxuries and necessities, the main question being what imports could be dispensed with without causing too great disturbance to the economic life of the country. List of restricted imjyorts No. f,.^ — As a continuation and extension of the policy which resulted in the preparation of List No. 1, a second list of restricted imports was issued April 22. This list contained 46 items for which no import licenses for shipments made after May 13, 1918, would be granted except as specifically mentioned. The restric- tions in this list were classified on a basis of the countries from which importation of the given commodities would still be permitted. The groups were as follows : \a) Shipments coming from Canada. (6) Shipments coming from Canada and Newfoundland. (c) Shipments coming from Canada and Mexico. {d) Shipments coming from Cuba and West Indies. (e) Shipments coming from Canada, Mexico, Newfoundland, and Scandinavia. (/) Shipments coming from non-European countries. {g) Shipments coming overland or by lake from Canada or overland from Mexico. ' For a history of the publicly announced restrictions placed upon the items in this list, see Appendix, Exhibit II, Section II. ^ For a history of the publicly announced restrictions placed in this list, see Appendix. Exhibit II, Section III. 312 KBPORT OF THE WAR TRADE BUABi>. (h) Shipments coining overland or by lake from Canada; over- land from Mexico; or as return cargo from Europe and then only when shipped from a convenient port and when loaded without undue delay. (?■) Shipments coming from any country, but as deck cargo or on A^essels unfit for essential imports. "Convenient European ports" was defined as in the case of List No. 1. However, on June 26 the back-haul privilege was extended to convenient Mediterranean ports of Africa. This applied to both lists. On July 6 these African ports were designated — Djidjelli, Algiers, and Gran. Finally on July 19 it was ruled that " all allied or neutral ports in Europe or Mediterranean Africa are for the present to be considered as convenient ports." Previous to this time if applications were made for licenses for commodities on a restricted list, where the shipment was to be made from a port not enumerated as one of the convenient ports, it was necessary to consult the Shipping Control Committee of the Shipping Board, but after July 19 no reference to this committee was necessary. Another new feature connected with List 2 was the defining of the items. The question was constantly arising in the administration of List No. 1 whether or not such an article came within the list. For example, " Is a baseball a toy ? " List No. 1 had been prepared on the basis of the classification of the Department of Commerce, but in order to eliminate as far as possible questions which caused inconven- ience both to the importers and to the Bureau of Imports, the latter prepared a table in which each item in List No. 2 was defined by a reference to a paragraph in the tarijff act of 1913 — e. g., "Dairy products — All articles specified in or classified under paragraphs 195, 196, and 547, except sugar of milk in 547." To determine, therefore, whether any given commodity were included in List No. 2, an im- porter had only to see whether it was classified under the paragraph in the taiiff act of 1913 to which the item which might cover the given commodity referred. This plan diminished the work involved in administering the second list about 75 per cent from that involved with the first list. Supplementm'y list^ sometimes called List No. 3. — ^This list was never issued as a unit by itself. It consisted of about 40 items upon which import restrictions were officially placed from time to time during the period extending from the publication of List No. 2 until the signing of the armistice. It difl'erecl from the first two lists in that the bulk of the items consisted of necessarj' imports. These were commodities for which the United States was dependent upon outside sources for a supply adequate for our needs. The policy followed in placing an article in this list was to estimate the minimum amount necessary, taking into consideration the possi- bilities of increased domestic production and opportunities for sub- stitution and then limit the imports to this amount, endeavoring at the same time to secure it with as few long hauls as possible. In fact, the War Trade Board on October 21, 1918, passed a resolution whereby the Bureau of Imports was thereafter to issue no licenses for the importation of any commodity from any country except to cover shipments of the commodities enumerated, and then only from ^ For a history of the publicly aunounceij restrictions placed in this list, see ADneDdix. Exhibit II. Section IV. REPORT 01' THE WAR TRADE BOARD. 313 the countries, and, when so stated, in the amounts set forth. It was expected that a complete list of permitted imports would be com- pleted and ready for actual enforcement on January 1, 1919. Mean- while the Bureau of Imports was to issue licenses m conformity with the existing regulations. The signing of the armistice prevented the final completion of this plan. Government agencies involved in the formulation of the various restrictions. — It should be understood that the Bureau of Imports did not of itself initiate all of the restrictions. The import program, especially after February 1, 1918, was in a large measure worked owt by the Division of Planning and Statistics of the Shipping Board act- ing in full and constant cooperation with the War Trade Board. The regulations in most cases affected other departments of the Gov- ernment, which were always consulted. In the case of food products the Food Administration was an important factor, and in the case of commodities affecting our industries the War Industries Board played an important part. The influence of the War Depart- ment was uppermost whenever essential war materials were involved. The Treasury was interested in so far as the rate of foreign exchange was involved and the State Department regarded the restrictions from the diplomatic point of view. In some instances the Depart- ment of Agriculture was involved, as, for example, in the case of the restriction limiting the importation of alfalfa seed to that which should be approved bj^ the Department of Agriculture. The pur- pose of this was to purify the domestic crop. The Bureau of Im- ports cooperated in some cases, but from the 1st of February, 1918, its function became more and more purely administrative. It issued licenses according to the rulings of the War Trade Board and en- forced them. MACHINERY DEVELOPED FOE IMPORT CONTROL. LICENSE SYSTEM. Acquisition of license. — Any firm or individual desiiing to import goods into the United States after November 28, 1917, was required to make an application to the Bureau of Imports for a license to im- port the desired goods. Blank forms upon which such applications were to be made could be secured from the bureau or any of its branch offices. Applications had to be made out in duplicate and sent to the Bureau of Imports. If the application were granted, the original was returned to the importer with the license indorsed upon it. The duplicate Avas placed in the files of the Bureau of Im- ports. Period of validity of import licenses. — A license was valid, if not revoked, for a period of 90 days from the date of its issue and could be extended from time to time for 90-day periods, provided cir- cumstances did not change so that the request had to be refused. Until September 15, 1918, it was required that United States custom entry be made within 90 days from the date of the license. On and after this date it was sufficient if shipment was made withm the 90 days. An extension of time could still be secured. On Novem- ber 23 the Bureau of Imports issued a ruling that all import licenses thereafter issued should be valid indefinitely unless revoked, pro- 314 KEPOET OF THE WAR TRADE BOARD. vided it was not otherwise expressly stated in the license. This also held true of any import license issued, or on which extensions had been granted, on or after August 25, 1918. Partial shipments. — The Bureau of Imports did not issue blanket licenses — that is, licenses for unlimited amounts — to any firm or in- dividual. It did, however, allow an importer to estimate the quantity of a commodity to be shipped to him by any one consignor during a period of 90 days and issued an import license for this amount. The importer was then allowed to enter partial shipments at any time dur- ing the life of the license. "When the total quantity licensed, or as much of this quantity as the importer desired had been entered, the collector of customs took up the license and returned it to the bu- reau at Washington. Notice to United States consuls of import license number. — Each license was numbered and United States consuls were instructed not to issue consular invoices on and after April 15, 1918, for articles mentioned in List No. 1 without first being furnished with the num- ber of the import license or being given other evidence of the issue of such license. Similarly shipping agencies received notice not to ac- cept for shipment consignments of any articles included in List No. 1 without evidence that the import license had been issued. It should be noted that these instructions pertained only to commodities in the restricted lists. The importer was therefore compelled to notify his shipper abroad of the number of his import license, so that the ship- per could furnish it to the consul and the shipping agency. Upon being informed as to the number of the import license the consul indorsed this number upon the invoice. In order to obtain his goods after their arrival in this country the importer was required to turn over his license to the collector of customs. The latter would not permit the entry of any restricted articles unless the number of the import license corresponded with the number indorsed on the in- voice. The same system was adopted with the articles enumerated in List No. 2. One serious objection arose with this arrangement. The consuls were obliged to interpret the restricted lists in order to know whether it was necessary that they be informed of the number of the import license before certifying the invoice. In case of articles on the restricted list such information was required; with other articles it was not necessary. The consuls were not in a position to make this interpretation. Consequently the Bureau of Imports announced that on and after May 27, 1918, import license must be procured in ad- vance for all commodities whether or not they were included in the restricted lists. This eliminated all need of interpreting the re- stricted lists on the part of the consuls. In spite of this modification and in spite of the clear regulations of the War Trade Board, certain consuls persisted in certifying in- voices for restricted articles when no import license had been granted. Moreover, it was discovered that there were large numbers of ship- ments made when the foreign shipper had given the consul a fictitious number and had in this way secured the certification of the consul. Under the system used there was no way by which the consul could tell whether the number given was correct. These conditions led to a rule, which became effective October 1, 1918, that consuls should REPORT OF THE WAR TRADE BOARD. 3 1 5 not certify invoices for any shipments except upon official notifica- tion from the War Trade Board through the State Department of the license number, the names of the consignor and consignee, a description of the commodity to be shipped, and tlie quantity licensed. The Bureau of Imports at the request of the importer would mail or cable the number at his expense. The establishment of this system involved a large amount of additional work for the bureau, but it was believed to be an important step in the develop- ment of a strict enforcement of the import regulations. On Decem- ber 16, 1918, the Bureau of Imports discontinued this practice of notifying the consuls officially of import license numbers. Tlie consuls were instructed not to indorse the license nuriiber upon the invoice until the shipper produced a letter or cable from the con- signee stating the import license number, the commodity, and the quantity licensed. The expense connected with the cabling of the numbers amounted to about $4,000 a month, and it was thought that the changed conditions which existed because of the signing of the armistice did not warrant this expense. The new precautions taken to avoid violation of the regulations were deemed sufficient, considering the fact that the rapid removal of import restrictions would, in large measure, eliminate attempts to evade the law. Eflfec: tive January 17, 1919, the consuls were instructed to certify invoices covering all unrestricted commodities without demanding the pro- duction of an import license number. This action relieved the im- porters of the United States from the inconvenience and expense involved in furnishing their shippers abroad with the import license numbers hitherto required to be given to the consuls before the latter would certify the invoices. It recluced the system to the original form in which the license number was required only in the case of com- modities which were on the lists of restricted imports. As has been stated, the serious objection to this original procedure was the diffi- culty experienced by the consuls in interpreting the restricted lists. However, by the middle of January, 1919, over 90 per cent of the items on these lists had been removed. The consuls could now ea-;ily keep informed as to the commodities still being restricted, and con- sequently there was no justification for further burdening the importers of the country. Indorsement of Mils of lading to a trade orgoMization. — In cer- tain cases licenses to import a given commodity were granted on condition that the importer indorse his bill of lading to a specified trade organization. Whenever the import license contained such a condition the importer, upon receiving his bill of lading, ^y;^s re- quired to present it properly indorsed together with his import license to the trade organization specified. The trade organization would then cause the importer to execute and deliver a guaranty to abide by the regulations of the War Trade Board and to refrain from reexporting or selling to the enemy. The guaranties required by the various trade organizations differed in details, but the same general purpose of maintaining a strict control over the use of the articles appears in all. In some cases the War Trade Board required that a guaranty of a similar nature be presented to it, along with the application for the import license. The trade organization would then reindorse the bill of lading to the importer, who could enter 316 BEPOET OF THE WAK TEADE BOARD. his goods by presenting to the collector of customs his import license and his bill of lading indorsed by the trade organization. This method of controlling imports was entirely abandoned by February 1, 1919, excepting in the case of pig tin, tin ore, and tin concentrates. The provision that importers of these commodities should indorse their bills of lading to the American Iron and Steel Institute was not revoked until the first of June. General licenses, or PBF licenses. — Certain exceptions were made to the general rule that importers must apply for licenses and jjresent them to the collector of customs before they could enter their goods. In such cases the collectors of customs Avere in- structed to permit the importation of certain commodities with- out requiring an individual license, provided they came from the countries and by the means of transportation designated. The United States consuls were given instructions to consulate invoices of goods shipped under these conditions. Such instructions con- stituted what were known as general licenses. They first arose from the necessity of avoiding congestion of traffic at docks and on rail- roads crossing the borders. By May, 1918, the permanent value of such general licenses was realized and a codification of the eleven then in force was made. They were named PBF licenses, the initials being those of the director of the Bureau of Imports in reverse order. Of course, the existence of a general license elimi- nated a mass of clerical work, and whenever it was possible to issue an additional PBF license without running counter to the policies of the War Trade Board, it was done. A striking illustration of this policy was PBF No. 27, covering the importation from the United Kingdom, France, Italy, and their European or Mediter- ranean possessions .of all commodities with certain specified excep- tions. The exceptions consisted of articles whose distribution was subject to control by the Bureau of Imports and for which an indi- vidual license was therefoi'e necessary or whose importation from Europe was prohibited in order that they might flow into the hands of the Allies and the agent of the American Expeditionary Forces. The Bureau of Imports estimated that this one PBF license eliminated the issue of 150 licenses each day. It also removed a source of inconvenience to importers from these regions. The policy of the War Trade Board was in no way modified, since the con- trolled commodities and those which it was desired should remain in Europe were specifically excepted. On December 31, 1918, there were 29 such licenses in effect, of which only one had been added after the signing of the armistice. During the early months of 1019, however, the policy of issuing general import ' licenses was largely extended, until in May all but a few controlled commodities from all countries of the world, except Germany, Hungary, and Soviet Russia, might be imported without the necessity of applying to the Bureau of Imports for licenses. THE ATXOCATIOX OK DlSTRtnUTIIIX OF IMPORT.S. One of the difficult problems raised by the policy of restricting imports of a given commodity was to distribute fairlv the quantities of goods admitted. The war needs of the Government were the first consideration. Whatever materials were needed by manufac- REPORT OF THE WAR TRADE BOARD. 317 turers working on war contracts Mere forthcoming. The problem Jay m the distribution of what remained after their needs had been satished. It would obviously be unfair to allow some manufac- turers as much as they had always enjoyed, thus leaving others with little or none. The principle followed in making allocations was to divide the amount to be distributed among those previously engaged m the trade on the basis of their business during a speci- fied period previous to the laying of the restriction. The principle is simple, but its application was frequently difficult. A solution which proved to be fair m o^ie trade would not be suitable for an- other. It Avas difficult to determine the relative ri^lits of the im- porters and the manufacturers or other purchasers.' If the alloca- tion Avere made directly to the manufacturers, the importers' busi- ness was gone; if allocation were made to the importers, there was danger that they would take advantage of the reduced supply and profiteer at the expense of the manufacturers. Allocation of crude riiiher.—ThQ Bureau of Imports worked out this scheme for the allocation of crude rubber. It was assumed that 100,000 long tons of rubber would be allowed to be imported durin"- the year commencing May 1, 1918. Of this amount it was estimated 36,000 long tons would be necessary to meet the requirements of the Associated Governments, leaving a surplus of 65,000 long tons avail- able for all other purposes. This amount was about seven-sixteenths of the amount consumed by the manufacturers in 1917. Therefore to each manufacturer was allocated seven-sixteenths of the amount he had consumed during the year 1917. Certificates were issued to each manufacturer stating the amount of rubber allocated to him on a three months' basis. These certificates had to be given by the manufacturers to the importers from whom they secured their rub- ber. The importers in turn were obliged to file the certificates with their application for licenses to import the rubber. Thus, if the total consumption of a manufacturer for 1917 had been 160,000 pounds, he was entitled to import or haxe imported for him rubber at the rate of 70,000 pounds a year, or 17,500 pounds for the three months com- mencing May 1, 1918. This plan, with a few slight modifications, was continued until about the middle of December, when the restric- tions on rubber began to be relaxed. Allocation of cocoa beans. — The Bureau of Imports also worked out a system of allocation for cocoa beans, or cacao. This was a much more in^^-olved system. First, the countries from which im- ports would be permitted were grouped into eight districts and the amounts to be imported from each were determined. The importers were asked by questionnaires to furnish figures showing their im- ports from each of these districts bj^ years from July 1, 1913, to June 30, 1916. These figures were divided by six, the result being consid- ered as the normal importation for six months of each importer from each district. From the total amount of imports into the United States permitted from each district 15 per cent was set aside for emergencies. Then the proportion between the amount remaining and the total normal imports was found for each district. The re- sulting percentage was taken as the proportion of his normal imports from the given district which each importer would be allowed to im- port from July 20 to December 31, 1918. From the amounts thus 318 REPORT OF THE WAR TRADE BOABD. allocated to each importer 20 per cent was transferred to an account called the manufacturers' import account. This was done in order that manufacturers using the cocoa bean might be able to import di- rectly if they so chose. In addition to this, each manufacturer was allowed to purchase from importers an amount which would bring his total supply of cocoa beans up to 64 per cent of the amount which he had used in manufacturing during the period July 1, 1917, to De- cember 31, 1917. The importers, whenever making a sale to a manu- facturer, were required to obtain from him an allocation certificate similar to the following : Date To the Bureau of Imports, War Trade Board, Washington. We request you to issue an import license to Importer. for of Amount of figures. Commodity. charging that amount against our allocation. Signed. The importer sent this certificate to the Bureau of Imports together with the number of the license covering the shipment from which the sale was made. The system was not a rigid one. In addi- tion to the 15 per cent of the total imports permitted from each district which was set aside for emergencies, it was found that there were some importers who did not call for all the amounts allocated to them. The amount thus rendered available was given to im- porters who desired more than the amounts allocated to them. This double system of allocation was intended to secure justice as between the importers and manufacturers. In the first place it did not allocate all the supply to either the importers or the manu- facturers. One-fifth of the amount allocated to the importers was set aside for which licenses to import would be issued directly to the manufacturers. At the same time, by requiring the importers to turn in the allocation certificates of the manufacturers, a check was pro- vided against hoarding on the part of the importers. Allocation of Japanese foodstuffs. — Another interesting example of allocation was that of Japanese foodstuffs. As a result of the representations of the Japanese Government the import restrictions on vegetables, breadstuffs, and fish were modified to permit a total of 13,138 tons of Japanese foodstuffs to come into the United States during the 12 months commencing October 1, 1918, for the exclusive use of Japanese consumers in this country. This amount was to be allocated by the Bureau of Imports with the assistunce of the Japanese Embassy who worked out the following plan : The country was divided into five consular districts — New York, Los Angeles, San Francisco, Seattle, and Portland. Oregon. The •Japanese foodstuffs were divided into nine classes — Mise (bean paste). Vegetable flour (breadstuffs Soy (sauce made from soy with exception of wheat ''<"''")• and wheat flour). Dried vegetables. Dried seaweed. Pickled vegetables. Canned fish. Canned vegetables. Dried fish. EEPORT OF THE WAR TRADE BOARD. 319 The Japanese authorities were allowed to distribute the 13,188 tons of imports among these nine classes and in the fi^•e districts as they deemed best. They reported to the Bureau of Imports the amounts thus allotted. The year was divided into thirds and the quantities allotted were therefore on a four months' basis. Before the Bureau of Imjjorts granted a license for the importation of any of these commodities the application for the license had to be consulated by the Japanese consul of the district from which the application was sent. In this way the Japanese authorities were able to allocate the imports among the Japanese commercial houses as they wished, the only interest which the Bureau of Imports had in the question being that the total amount of such foodstuffs be kept within the limits prescribed by the War Trade Board. In most cases in which there was an allocation of imports the War Industries Board cooperated with the Bureau of Imports in evolving the method to be used. In Exhibit VI of the Appendix will be found a list of commodities for which allocation of imports was provided. CCOPEEATION WITH THE CANADIAN WAK TRADE BOARD. The successful operation of the import program was at first ren- dered somewhat difficult by the fact that Canada did not have in force the same import restrictions as the United States. Consequently, goods which were not permitted entry into the United States from overseas began to be shipped to Canada. Once in Canada there was the possibility that they could be carried into the United States. The regulations permitting imports to come in from Canada pro- vided that the goods must be of Canadian origin or at least come from countries against which the War Trade Board had imposed no restrictions against the given commodities. The importer desir- ing to bring the forbidden goods into the country could either at- tempt to receive an import license by false statements as to the origin of the goods or he could endeavor to smuggle the goods into the country without a license. In either case the difficulty of en- forcing the import restrictions was increased. Assuming that goods imported into Canada were successfully kept from entry into the United States, the fact that it was possible for stocks to be accumulated in Canada to be rushed into the United States as soon as this country lifted its restrictions was obviously unfair to those American business men who refrained from such an unpatriotic practice. This evil was, however, met at the time the restrictions were raised by not permitting such goods to be imported into the United States from Canada until a sufficient period had elapsed for similar goods to be imported from the country of origin. The most serious phase of the situation was the fact that one of the main purposes for which the import restrictions were imposed — namely, the conservation of tonnage — was in danger of being de- feated. Parallel routes of ocean shipping were used, and it took just as many tons of shipping to import the goods into Canada as it did into the United States. The Bureau of Imports entered into ,S20 KEPOET OF THE WAR TRADE BOARD. negotiations with the Canadian War Trade Board with a view of securing the adoption by the Canadian authorities of the import program of the War Trade Board of the United Sta,tes. Canada was not in a situation to adopt the program in its entirety, but the negotiations resuUed in cooperation between the two countries. THE VIOLATION OR EVASION OF IJIPGRT REGULATIONS. The cases of violation of import restrictions which came to the attention of the \^iolations Committee of the War Trade Board were in the vast majority of cases more or less technical. There were three types of such cases. (1) Shipments made by foreign consignors to importers in the United States without knowledge of the latter that the shipments had been made until it was too late to secure the proper import license. (2) Failure on the part of the American importer to comply with the rule that the import license number be cabled or mailed to the shipper or the American consul at the port of shipment before the goods were shipped. (3) Importers would sometimes shift the numbers of their import licenses, acting on the apparent assumption that one license was as good as another and that the War Trade Board would not object pro- vided the shipment was substantially the same commodity coming from the same consignor for the same consignee. The majority of such cases were satisfactorily explained and the violation of the rules was condoned. There were, however, cases in which the attempt to evade the law was perfectly clear. Such was the attempt made by a foreign shipper to get goods into the United States by giving a fictitious import license number to the United States consul, and thus secure the certification of the in^■oice. This type of attempt to evade the law was responsible for the passage of the ruling requiring that the United States consul receive official notification from the War Trade Board of the number of the import license before certifying any invoice. In other cases the importer had cabled his import license number to his shipper, but had failed to state the license requirement that the shipment to be valid must be made within a certain time. The result was that goods would arrive after the license had lapsed. The im- porter would often claim that the United States consul was at fault in certifying the invoice and that consequently the goods should be allowed to enter. Whether the omission to inform the shipper of the conditions of the license was an act of carelessness or a shrewdly con- cocted attempt on the part of the importer to get the goods into the country later than the Bureau of Imports contemplated Avhen the license was issued was determined by the Committee for Violations. It took the position that in either case f ailui-e to include the conditions of the license when the number was cabled relieved the United States consul from all responsibility, and such cases were decided fron' that standpoint. Another frequent type of attempted evasion ^as to enter goods into the country under a false description. Many of these attempts were detected before a license was granted, but in some instances the fraud REPORT OF THE WAR TRADE BOARD. 321 was discovered by the customs authorities after the licenses had been issued and after the goods had reached a port of entry. In one par- ticularly flagrant case of this kind, a foreign shipper conspired with his branch office in the United States to ship a certain number of cases of vegetables disguised as medicines. Knowledge of this de- ception came to the Violations Committee and the customs officials in cooperation with agents of the Department of Justice waylaid the shipment and brought the conspirators to account. NeedleJss to say, such penalties were inflicted as to more than offset the profits which would have been made had the conspiracy proved successful. After the armistice, the "\"\'ar Trade Board began to relax its restric- tions upon imports. Certain importers had stored in Canada goods which they had not been permitted to bring into the United States. If they were allowed to import these goods immediately upon the re- moval of the restriction placed upon such goods, they would enjoy an undue advantage oxev other importers who had in good faith re- frained from using up tonnage for the transportation of goods whose entry into the United States was denied by law. Therefore the War Trade Board ruled that the removal of restrictions should a2)ply only to shipments from the country of origin or primai'v overseas market after the public announcement of the lifting of the restriction. In case of goods not originating in Canada, no import licenses were to be issued for at least 90 days after the removal of the restriction. This ruling, first put into effect on December 13, 1918, was modified on January 22, 1919, by reducing this period from 90 to 60 days. This rule, loiown as the "sixty-day rule," was expected to place all im- porters upon the same basis. There were a considerable number of attempts to evade this action of the War Trade Board. An importer would make an application in which he would state the country of origin correctly as India. Then he would state as the expected date of shipment a date later than that on which the restriction was to be removed. This, too, might be correct, but the shipment was from Canada, not from India. In other words, he neglected to explain that the goods, though originating in India, were actually reposing in Canada. In some cases shipments of goods had been made prior to the lifting of the restrictions. The probability was that this was being inten- tionally done in violation of the law. The committee followed the rule of taking the date of the ocean bill of lading as the factor de- termining whether the goods were shipped previous to or after the public announcement of the removal of restrictions. Whenever there were flagrant case,-, of intentional violations of the import regulations, the cases were turned over to the Department of Justice for them to deal with as they deemed best. It should be stated, however, that the majority of cases were those in which foreign consignors were at fault rather than American importers. Fre- quently, also, cable instructions to American consuls were miscon- strued or garbled in transmission. A willful intention on the part of American importers to disregard the regulations of the War Trade Board was proved in comparatively few cases. 103584—20 22 322 EEPOET OF THE WAR TRADE BOARD. Applications for import licenses received, granted, refused, and cancelled, December 1, 1917, to December 31, 1918, inclusive. Applications received. Number. Quantity, in pounds, of goods for wMch licenses were requested. Value of goods for which licenses were requested. Applications granted. Number. Quantity, in pounds, of goods for which licenses were granted. Value of goods for which licenses were granted. 1917. December 1918, January February March April May June July August September. . . October November. . . December Total.. 2,223,644,749 20,123 9,060 23,868 22,111 22, 304 16,337 14,969 13,051 9,894 9,128 10,079 11,018 5,126, 4,428, 8,604, 6,868, 9,756, 15,108, 5,747, 7,513, 4,471, 7,361, 5,162, 7,019, 370, 339 898,066 959, 842 901,351 666, 332 430,298 926,114 469,242 886,663 467, 748 415,232 662, 972 $237,801,949 215, 869, 274 282,147,927 537, 738, 633 524,011,025 688,082,330 515,025,296 399,049,690 520, 197, 044 433,425,170 429,643,401 506,288,280 522,579,862 7,252 2,214,637,109 20,056 8,888 23, 384 21,259 20,063 14, 388 13,090 11.244 8,173 7,323 8,073 9,803 5,046, 4,332, 8,087, 6,620, 9,071, 14, 577, 5,176, '6,924, 3,403, 6, 438, 4,441, 6,282, 318, 764 374, 714 357,046 157, 483 382, 860 114,495 878,880 670, 675 223,595 435,855 458,744 897,420 $236,091,693 210,326,592 277, 196, 808 511,947,996 506,195,234 638, 866, 061 462, 678, 593 330,606,761 451,485,224 349,053,379 355,672,662 442,786,881 460,611,535 189,247 1,392,697,946 6,811,859,781 172,996 82,616,807,640 5,223,407,399 Applications refused. Number. Quantity, in pounds, of goods for which licenses were refused. Value of goods for which licenses were refused. Applications cancelled. Number. Quantity, in pounds, of goods for which licenses were cancelled. Value of goods for which licenses were cancelled. 1917. December 1918. January February March April May June July August September. . . October November. . . December.... Total.. 31 120 296 615 1,741 1,400 1,240 1,191 984 1,250 1,635 747 768,693 1,463,664 26,480,690 76,376,610 72,473,436 261,702,096 276,138,696 314,252,536 160,983,843 372,352,461 453,107,463 3.36,436,207 358,851,192 $116,450 129,246 2,693,874 17, 667, 424 9,617,103 27, 867, 439 33,683,857 33,368,878 21,934,854 33,662,564 44,816,678 36,669,928 35, 828, 506 36 52 188 337 600 549 639 616 737 555 371 468 8,338,947 78,587,911 68,042,762 441,226,186 176,270,432 433,580,376 266,177,106 266,794,698 427,814,724 696,310,607 469,924,430 384,521,281 377,914,360 $1,594,806 5,413,436 2,267,245 8,323,213 8,298,688 21,368,830 28,662,846 35,184,961 46,776,966 50,709,237 29,164,071 26,832,471 26,139,821 2,701,386,486 297,735,791 5,093 4,074,503,820 290,716,691 STATEMENT SHOWING APPLICATIONS RECEIVED AND THE DISPOSITION MADE or THEM. The tabled statement printed above shows the number of appli- cations for iniport licenses received, granted, refused, and cancelled The quantity in pounds and the value of the goods with which their applications dealt are also given. This gives an idea of the amount of mechanical work performed by the Bureau of Imports. It should be noted that the figures given for the value of the goods for which individual licenses were issued do not agree with the figures showing the value of imports for the calendar year as given REPORT OF THE WAR TRADE BOARD. 323 by the Bureau of Foreign and Domestic Commerce. There are various reasons for this divergence. The table here presented shows the value of the goods for which individual licenses were issued. It does not include the value of goods which came into the country under a general or PBF license. The value figures presented are the estimated values as given on the applications. The figures pub- hshed by the Bureau of Foreign and Domestic Commerce are taken from the invoices of the goods as they are obtained by the collectors of customs. Finally, the fact that a license was issued by the Bureau of Imports did not necessarily mean that the goods covered by the license were actually imported. ORGANIZATION OF THE BUREAU OF IMPORTS. The chart on the following page is intended to show the organiza- tion of the Bureau of Imports as it was on November 11, 1918, Avhen the War Trade Board was at its height. Director. — The director was the connecting link between the bureau and the War Trade Board. He was called into the meetings of the Board to contribute whatever the bureau had to offer and to keep in touch with the policies of the Board. He was responsible for seeing that the rulings of the War Trade Board, in so far as they bore on imports, were properly put into effect. The general direction of the bureau was in his charge. Assistant director' and assistants to director. — The director was aided in this work by an assistant director and by two assistants. One of these assistants had charge of the Division of Interpretation and Kulings. Division of Interpretation and Rulings. — As already indicated (p. 312), many questions arose in connection with the restricted lists and rulings of the bureau, and this division was created to pass on such questions. It prepared the statement of interpretation of re- stricted list No. 2, defining what was included under each item by reference to a paragraph in the tariff act of 1913. All applications for import licenses were passed through this division in order to detect attempted evasions and were scrutinized for errors. If the application needed correction in any respect it was returned to the applicant with necessary instructions. All applications involving commodities covered by PBF or general licenses were returned to the applicant with the necessary information. A few examples of attempts made to deceive the Bureau of Im- ports and obtain licenses to import commodities on the restricted lists are interesting. An application was received for a license to import pituitary glands. No such item appeared in the lists of restricted articles and the applicant hoped the license would be granted. The shipment was worth $1,000,000 and the chance was worth taking that the Bureau of Imports would fail to connect the unusual term with ordinary sausage casings. However, sausage casings were a restricted commodity, and this clever attempt to secure a license to import them was detected in this division. Another application was received for a license to import silk tablecloths valued at $3,500 and weighing 1,500 pounds. The tariff paragraph under which these were classed was carefully given. It 324 REPORT OF THE WAR TRADE BOARD. REPORT OF THE WAR TRADE BOARD. 325 covered all embroidered articles. It happened that the applicant had previously always neglected to mention the tariff paragraph^ although specifically instructed to state it. This circumstance, to- gether with the fact that the paragraph which was mentioned called for a duty of 60 per cent ad valorem, whereas silk tablecloths would naturally have been classified under another paragraph calling for only a 45 per cent ad valorem duty, caused the application to be regarded with suspicion. It seemed probable that if the goods were tablecloths valued at $3,500 and weighing as much as 1,500 pounds they were made of more substantial material than silk — embroidered possibly in silk, but whose chief value was not in the silk. Conse- quently the application was denied on the ground that the goods were made of artificial silk, which was on the restricted list. The applicant protested, but refused to furnish a sample, and conse- quently his protest was of no avail. An attempt was made to secure a license to import " chip manu- factures •' from Japan, to be used for millinery pui-poses. At that time millinery trimmings were not on the restricted list. Theses " chip manufactures " were in reality rope garlanding made froma chip used for decorating Christmas trees. This was classified under." " toys " and was not permitted to be imported from the Orient, On December 19, 1918, the restriction upon the importation of live animals was removed. Shortlj' after this an application was received for the importation of pheasants. Upon investigation it was found that the feathers were all that remained of the birds. As the restrictions against the importation of feathers were still in effect the application was refused. Trade advisers. — A very important part of the Bureau of Imports were the trade advisers. These men were placed in charge of speci- fied commodities, and the responsibility for granting or refusing ac- cording to the rules in force any applications to import rested with them. These men were in touch with the business organizations in- terested in the importation of the commodities for which they were responsible. In cases in Avhich control was exercised by the Bureau, of Imports with the cooperation of trade associations, it was the- trade advisers who represented the Bureau of Imports in adminis- tering this control. The organization chart shows the trade organi- zations with which the trade advisers cooperated. The trade ad- visers also kept in close contact with the experts in their lines who^ were with other departments or bureaus of the Government. Gonwnercial adviser. — Whenever a trade adviser or any other member of the bureau felt the need of expert advice concerning some: commercial point, he referred to the commercial advisers. Legal adviser. — ^Whenever some legal point was involved upon which the trade adviser desired advice, he turned to the legal ad- viser. It was the latter's function to furnish any legal opinion called' for in the administration of the work of the Bureau of Imports. He ■ was also a member of the Violations Committee of the War Trade •■ Board, being especially interested in violation of import regula-*- tions. Foreign trade adviser. — The work of facilitating the shipment of imports into the country which foreign Governments were for some' reason preventing from leaving their borders was in charge of the.' 326 KEPOBT OF THE WAB TRADE BOAKD. foreign trade adviser. The importance of this work has been dis- cussed on pages 97-99. Director of hearing. — When the War Trade Board issued rulings regulating the importation of any commodity, those interested in its importation often raised strong objections to the regulations. In such cases the director of hearings called a meeting at which those inter- ested were allowed to present their case. The problem was discussed from all standpoints, and if the director of hearings decided that any modifications in the regulation should be made, he made his recom- mendations to the War Trade Board with whom the final decision rested. 0-ffice manager.— Th& remaining divisions of the Bureau of Im- ports were under the supervision of the ofiice manager, who saw that the machinery of the bureau was in good running order and had charge of the personnel under direction of the Bureau of Adminis- tration. Division of Supplies. — The Division of Supplies furnished the members of the bureau with the equipment necessary to carry on their work. This was under the direction of the assistant manager, who sent his requisitions to the Bureau of Administration. As the rest of the divisions are cogs in the machinery for issuing licenses they will be treated in the order in which the application for an import license was routed until the license was actually sent to the applicant. In a few cases, in order to make the plan of routing complete, it will be necessary to refer to parts of the bureau already discussed. Division of Incoming Mail. — All mail for the Bureau of Imports was sent from the main mail room of War Trade Board to the Division of Incoming Mail. Here it was opened and all applications for licenses were stamped with the date on which they were received. The applications were then turned over to the Division of Interpre- tations and Kulings. Division of Interpretations and Rulings. — The part which this division played in the handling of import licenses has already been discussed. To recapitulate, it looked over the applications for errors of any kind and it endeavored to detect attempts to evade import regulations. Applications for individual licenses where none were required were taken out and the applicant informed that he might import under a PBF or general license. The application, if it met with the approval of the Division of Interpretation and Rulings, was passed on to the Distributing Divi- sion. Distributing Division. — It was the function of this division to note the nature of the commodity for which an import license was re- quested and to send the application to the trade adviser who was the expert for that coimnodity. This division also looked over the duplicate and triplicate to see that they were identical with the original. (It should be noted that after June 1, 1918, all applica- tions for nnport licenses had to be made in triplicate; previous to that date only in duplicate.) The triplicate was taken out at this pomt and sent to the Division of Application Files, where it was filed under the name of the applicant. Trade Adviser.— Thu trade adviser has already been discussed. As stated above the decision as to granting or refusing the application REPORT OF THE WAR TRADE BOARD. 327 under the rules. in force rested with him. The War Trade Intelli- gence Bureau might know some reason why this application should not be granted. Therefore, after the trade adviser had given his ap- proval of the application, it went to this bureau. As this involved the sending of the application out of the supervision of the Bureau of Imports, the application was first sent to the Division of Checking Division of ChecUng.—hi order to enable the Bureau of Imports to know whether or not an application had left its jurisdiction and if it had, whether it was returned, the Division of Checking was created At this point of the routing of the application the date on which it had been sent to the Bureau of War Trade Intelligence was recorded Meiriher of Conference Committee.— li the application was refused by the Bureau of War Trade Intelligence, the case was reviewed by a conference committee composed of one member each of the Bureau of War Trade Intelligence, the Bureau of Enemy Trade, and tlie Bureau of Imports. Three questions presented themselves to the committee. (Ij Should the refusal of the Bureau of War Trade Intelligence to approve the application be sustained or (2) over- ruled? (3) Could and should the objection of the Bureau of War Trade Intelligence be removed by the issue of an enemy trade license and an import license in connection with it, either one of which was invalid without the other ? There were frequently cases in which it was to the advantage of the United States that the commodities for which the application to im- port had been made should be permitted to enter, but owing to the fact that the shipper was on the enemy trading list or was under suspicion the application was refused by the Bureau of War Trade Intelligence. The policy of the committee in such cases was to find a way of securing the entry of the desired commodities into the United States. Assuming that the Bureau of War Trade Intelligence had no ob- jection to the granting of the license, the application was returned with its approval to the Bureau of Imports. This fact was also recorded together with the date by the Division of Checking. Division of Audit. — The application was then sent to the Division of Audit. It was the duty of this division to catch any defects in the granting of the application. There should be no errors or omis- sions, indicating that the application had been properly prepared and passed. If such defects were detected, the application was re- turned to the proper trade adviser for his attention. The auditing department was supposed to discover anything that was wrong with the application. It checked up the work of those through whose hands the application had already passed. Even this check was not considered sufficient, for it was necessary for the application to be scrutinized by the auditors of the War Trade Board. Therefore the application again went to the Division of Checking to be checked out to the War Trade Board auditors, and after they had approved it it was returned to the Division of Checking for a record to be made of its safe return to the Bureau of Imports. Division of Cabling. — During the period from October 1 to Decem- ber 16, 1918, when the requirement was in force that United States consuls receive official information from the War Trade Board con- cerning the import license number and other facts before certifying any invoice, applications were sent from the Division of Checlring to 328 EEPOET OF THE WAR TRADE BOARD. the Cabling Division. During this period the required information for over 23,000 import licenses was transmitted to consuls. Division of Issuing. — Finally the application reached the Division of Issuing, generally known as the Division of Outgoing Mail. This division received all the applications which had been granted. It separated the duplicate from the original and the latter was signed and mailed to the applicant. After July, 1918, the duplicate passed from this point into the hands of the Bureau of Tabulation and Statistics, which maintained a force in the Bureau of Imports for the purpose of compiling commodity cards showing the number of the application, name of the commodity, and its quantity and value. It was then sent to the Division of Application Files, where it was filed numerically. Three other divisions remain to be described — the Division of Tracing, the Division of Correspondence Files, and the Division of Application Files. Division of Tracing. — Whenever complaints were received of the failure to receive licenses or of delays in any action being taken on applications, the Division of Tracing found the cause. The first step taken was to look in the triplicate files to see whether or not the application was ever received. If the triplicate was found, the dup- licate files were then examined to discover if the application had been approved and mailed. If the duplicate was not there, then the trade adviser handling the commodity for which the license was requested was questioned regarding the case. If he had approved it and sent it on, the Division of Checking enabled the application to be traced to the party holding it. If the trade adviser had not acted on the application, he took such steps as the case demanded. If the applica- tion had been refused, the applicant was again informed to this effect. Division of Correspondence Files. — This division had charge of fil- ing the correspondence of the bureau. It was entirely distinct from the Division of Application Files. Division of Application Files. — The division was commonly called the division of duplicate files. The name remains over from the period when only the duplicates of the applications for licenses were filed by this division. In July, 1918, however, the filing of the trip- licate, the duplicate, and the original application after it had re- turned from the collector of customs who received it from the im- porter was put in charge of this division. The organization chart shows also the New York office of the Bureau of Imports. There were branches of the War Trade Board located at Boston, Chicago, Detroit, Eagle Pass, El Paso, Galveston, Laredo, Los Angeles, Mobile, New Orleans, New York, Nogales, Philadelphia, Portland, St. Louis, San Francisco, Savannah, and Seattle. The New York branch was the only one at which there was sufficient import business to warrant a separate office to represent the Bureau of Imports. None of the branches were allowed to issue licenses, but copies of all forms could be secured from these branches. The Bureau of Imports was in close touch with the Canadian War Trade Board, with whom it cooperated. It was, of course, in touch with the various departments, boards, and bureaus of our own Gov- ernment which were in any way interested in the regulation of im- ports. BUREAU OF TRANSPORTATION. EVOLUTION OF THE BUREAU. Forerunner of the hureau. — Immediateh' after the creation of the Exports Council on June 22, 1917, the question arose as to the desir- ability of some form of control over shipping coming within the jurisdiction of the United States by means of the licensing of bunker fuel and ships' stores. The Exports Council dii'e, ted that an investi- gation be made into the question and that a set of possible regula- tions be worked out. As the British had already developed a system of bunker control, their advice was sought and a plan was drafted for thus controlling vessels. The President's proclamation of July 9, 1917, included bunker fuel among the commodities which could not be exported without a license. Licenses for bunker fuel were granted liberally by the Exports Council, as no definite policy had yet been adopted. The Exports Administrative Board superseded the Exports Council on August 27, 1917. Occasional problems in con- nection with the granting of bunker licenses were arising and the Exports Administrative Board passed resolutions from time to time to meet each special situation. Finally the advisability was seen of establishing an organization whose function should be to grant or refuse licenses for bunker fuel, ships' stores and supplies, and on September 6, 1917, the Division of Transportation of the Bureau of Export Licenses was created. The records of the Bureau of Tranc portation go back to this date and its work developed and expanded the work begun in the Division of Transportation. Establishment of the Itvremi. — As has been stated, the War Trade Board was organized on October 13, 1917, and two days later it passed a resolution establishing the Bureau of Transportation, and provid- ing that the bureau continue the functions which had previously been exercised by the Division of Transportation. EUXTTIOXS OF THE BUREAU. The fimctions of the bureau may be summed up in the statement that it carried out the policies of the War Trade Board through its control over bunkers and ship stores. No vessel was permitted to clear for a United States port without a license for her cargo, bunker fuel, port, sea, and ship stores. This was true whether or not the cargo, bunker fuel, or stores were taken on board at a United States port, since the fact that the goods had been brought into a har- bor of the United States was sufficient to place them within her juris- diction. The Bureau of Transportation granted or refused applica- tions for licenses in accordance with the rulings of the War Trado Board. 329 330 REPORT OF THE WAR TRADE BOARD. ENDS ATTAINED THROUGH CONTROL OVER BTJNKEES AND SHIP STORES. The many different ends attained by the control of bunkers and ship supplies may be grouped under five main heads : ( 1 ) The prevention of aid being rendered to the enemy. (2) The conservation of tonnage. (3) The securing of essential commodities. (4) The conservation of essential commodities. (5) The enforcement of the regulations of the War Trade Board and other Government organizations. THE PREVENTION OF AID BEING EENDEEED TO THE ENEMY DIBBCTLT OB INDIBECTLY. Blockade and commercial isolation of G&rmMny and her allies. — This was an aim of the War Trade Board from its very inception. In fact, the Exports Administrative Board on October 5, 1917, author- ized the publication of this statement : Numerous cases have been presented to the Board where vessels have touched at a United States port en route to a border neutral and carrying cargo which did not originate in the United States, but which is destined for a border neu- tral and will undoubtedly accrue to the benefit of the enemy. This causes a serious embarrassment, and to avoid such embarrassment the Board has adopted ti policy calculated to prevent such cases arising in the future. This policy consists in stipulating that a vessel en route to non-European neutrals which touches at a United States port for bunker coal shall not be permitted to have bunker coal for the voyage unless she will agree to return to the United States with a cargo which would be approved by the Board or which is destined for a country other than a "border neutral." This aimed to prevent vessels sailing for some port outside the jurisdiction of the United States and there loading cargo which might be carried to the neutrals and eventually reach the enemy. In the bunker rules and regulations of the War Trade Board, which became effective February 1, 1918, are found the following provisions relating to the blockade and commercial isolation of Ger- many and her allies : (a) No vessel shall trade with any port in Germany or its possessions, or to any country allied with Germany, nor shall a vessel aid any vessel employed by or for Germany or any of her allies. (6) No vessel shall carry any cargo which comes from or through or is des- tined to Germany, its possessions, or its allies. (c) Every vessel which proceeds from or to the United States, to or from Norway, Sweden, Denmark (including Iceland and the Faroe Islands), Holland, Spain, or to or from any neutral port in the Mediterranean Sea, shall call for examination as may be directed by the War Trade Board. (d) No vessel shall carry any cargo from Norway, Sweden, Denmark (includ- ing Iceland and the Faroe Islands), Holland, Spain, or Switzerland to any ports unless such cargo is accompanied by a certificate of nonenemy origin. (e) No vessel shall carry any goods which are consigned to "order" unless the person to whose order the goods are consigned is the actual consignee. This provision applies only to goods shipped from the United States or its posses- sions to the European neutrals. (n No vessel shall be chartered to a subject of Germany or her allies. No application for bunker fuel or ship stores by any neutral ship or vessel of American registry not requisitioned by the Shipping Board was to be approved unless the person owning, chartering, or controlling the vessel agreed to be bound by these regulations as well as by others which will be mentioned below. These provisions, which were a part of the set of regulations known as General Eules No. 1, REPORT OF THE WAR TRADE BOARD. 331 were intended to prevent goods from being shipped into or out of the Central Powers on vessels touching at American ports. The guaranty to return was required in the case of all uncommandeered American vessels and generally in the case of neutral vessels. The control thus exercised over neutral vessels was a serious blow to the Central Em- pires. As early as September, 1917, a Danish steamer of over 3,000 gross tons applied for bunkers sufficient for a voyage from Norfolk to Rio de Janeiro and from thence to a port of one of the northern neutrals. This vessel contemplated carrying a cargo of coffee to a port of one of the northern neutrals, which would undoubtedly have gone to the German soldiers if the guaranty to return to America and discharge her cargo here had not been secured. The relaxation and final removal of this form of control is discussed on page 190. Dealing with enemy agents. — Closely allied to these provisions were others pertaining to dealings with an enemy or any person or firm suspected of aiding the enemy. [a] The owner or charterer of a vessel shall, upon request to do so by the \\'ar Trade Board, dispense with the services of the master, officers, or any members of the crew. (6) No vessel shall carry any cargo which is consigned to or shipped by any person, firm, or corporation with whom citizens of the United States are pro- hibited by law from trading. (c) No vessel shall carry to or from any European port any cargo which is consigned to or shipped by any person, firm, or corporation with whom citizens of any of the allied countries are prohibited by law from trading. (d) No vessel shall be bought or sold without the previous approval of the United States Shipping Board, the War Trade Board, or the Interallied Char- tering Executive. (e) No vessel shall be chartered to any person, firm, or corporation not acceptable to the War Trade Board. The Naval Intelligence Department ^vas of great aid in securing information concerning the personnel of the officers and crew of all vessels calling at ports of the United States and in detecting enemy interests in the operation of boats. A case illustratmg the value of this power to control the personnel of the vessel's crew is that of the Cricket. This steamer, flying the American flag, sailed from Norfolk to Havana. The Naval Intelligence Office reported that 300 barrels of oil had disappeared from its cargo. It was thought that this might have been transferred to a submarine, and an investiga- tion was instituted. This disclosed the fact that there was insub- ordination among the crew, and the first and second assistant engi- neers were immediately discharged. The Cricket had been employed in transporting mahogany logs from Nicaragua for use m the con- struction of aeroplanes. The assistant engineers apparently had done what they could to delay the movements of the vessel and thus obstruct the transportation of this essential commodity. The reasons for the other two provisions are obvious. It was de- sirable that the War Trade Board know who was to receive goods permitted to leave the United States. This was not possible unless the goods were shipped to the real consignee. In the case of transfers of the ownership of ships it was necessary to guard against enemy interests acquiring tonnage. Submarines and commerce rai^ere.— Another danger to be guarded against was attempts to aid enemy submarines or commerce raiders. In this connection rulings were issued aiming to reduce to the mini- 332 EEPOET OF THE WAK TEADE BOAED. mum the amount of booty of a nature valuable to the enemy which would fall into the hands of a commerce raider if it succeeded in capturing any vessels. The provisions in General Rules No. 1 which wei'e intended to guard against these dangers were : ( (/ ) If a vessel is titted with wireless telegraphy, the sending apparatus shall be sealed in such manner that no message can be sent without the knowl- edge of the master. The master shall be responsible for seeing, first, that no message to the enemy is sent by wireless telegraphy ; second, that no reports ;!re made of vessels sighted or of any weather conditions experienced; third, tliat no wireless messages of any Ijind are sent within 200 miles of England, France, Portugal, or Italy except emergency messages relating to vessels or persons in distress. On September 4, 1918, this order was modified to permit the use of the wireless within 200 miles of the given countries, provided such use was authorized by the war time radio instructors. On Novem- ber 14 this rule was still further modified by permitting messages to be sent regarding vessels sighted and weather conditions experi- enced. In December 17 this restriction was modified to apply only to vessels operating in or entering Atlantic waters east of the fortieth meridian west longitude. (h) All " buiakers " including coal, fut'l oil, and ships' stores shall be used solely for the purposes of the vessel and no portion shall be landed in any port or transferred to any other vessel. Late in October this order was modified to permit the discharge of surplus supplies, although this privilege was restricted and was carefully guarded to prevent abuse. This regulation had a double purpose — to conserve essential commodities and to prevent bunkers from falling into the possession of the enemy. The control thus maintained over bunker fuel began to be relaxed in December, 1918. Under date of December 5 instructions were sent to the American consular officers to permit all vessels to dis- charge their excess bunker fuel at all ports except at ports of Nor- way, SAveden, Denmark, Holland, Spain, Iceland, and the Faroe Islands. In accord with this action the Bureau of Transportation informed its agents and the collectors of customs that beginning with ^"ebruary 5, 1919, the clauses in the bunker licenses which prohibited the discharge of bunker fuel at foreign ports should be eliminated except in the case of vessels sailing for ports of Norway, Sweden, Denmark, Holland, Iceland, and Finland. The desire to avoid the possibility of bunker fuel reaching Germany explains* the exceptions made to this policy of removing the restriction upon the discharge of bunker fuel. On April 2.5. 1919, the removal of this restriction was made complete by the withdrawal of the exceptions. The in- structions of February 5 and April 25 included ships' stores as well as bunker fuel. (cO No vessel shall carry any i-oal or mineral oil unless the consignee is approved by the War Trade Board. Here, again, the purpose of guarding against such supplies falling into the hands of an enemy submarine or commerce raider is seen. After the submarines appeared off the coast of the United States- still gTeater precautions were taken against them. On August 12, 1918, the War Trade Board passed a resolution, that no licenses should be issued permitting the exportation fromi an Atlantic port of any commodity which was proposed for export KKl-UKT or THE WAR TRADE BOARD. 333 upon a sailing Aessel or aiixiliaiy motor schooner and which would be of benefit, if captured, to the crew of a submarine or raider. This included fuel oil and foodstuffs, but specifically made an exception of coal. About the last of August the Bureau of Transportation instructed its agents and the collectors of the customs to refuse licenses for unarmed vessels carrying deck cargoes of petroleum or its products, foodstuffs, and metals when their voyages would enrry them north of the latitude of Charleston, S. C. On September 25, 1918, still further precautions were taken. The War Trade Board ordered that no sailing vessel or motor schooner should be permitted to proceed from any Atlantic or Gulf port of the United States or its possessions, including sailing from Pacific ports through the Panama Canal, with a cargo containing petroleum or its products or foodstuffs, unless they were stowed at the bottom of the vessel with other cargo on top in such a manner that it would be difficult for an enemy submarine crew to gain access to them. Furthermore, vessels of this description should not be permitted to proceed from the regions noted above with cargoes of copper, brass, or other valuable metals. The submarine menace along the eastern coast of the United States having disappieared, the Board on Novem- ber 2 modified this regulation so as to permit such shipments in individual cases, and on November 15 all regulations intended to prevent supplies from falling into the possession of submarines were withdrawn. Coaling station at Curasao. — In this connection reference to the control of bunker coal at Curacao is relevant. Curasao is an impor- tant coaling station situated in the Dutch West Indies. In order to prevent the use of coal in behalf of enemy interests, export licenses for coal to coal companies at Curagao were granted only upon guaranty not to dispose of the coal without the consent of the Bureau of Transportation. Similar control was exercised over the sale of bunker fuel at Puerto Cabello, Maracaibo, and La Guaira, Venezuela. Effective May 3, 1919, all control over the sale of bunker fuel at Curasao and the Venezuelan ports was abandoned. Fuel agreement. — On May 10, 1918, a form of export license known as the fuel agreement was drawn up by the Bureau of Exports in conjunction with the Bureau of Transportation. The same purpose that brought about the control over the coal at Guragao animated this action. The United States wished to guard itself against fur- nishing such an essential commodity as coal to enemy interests. The agreement was signed by parties to whom the coal was consigned and provided for securing 'the approval of the War Trade Board before disposing of any coal as bunkers. All parties who had signed this agreement were on July 14, 1919, officially released from its obligations. Agreement tvith Spanish steamship Unes.— Another danger which the War Trade Board was called upon to meet was the possibility of the enemy maintaining communications with agents in the United States through Spain, South America, and Mexico. To eliminate this an agreement was entered into with certain Spanish steamship lines which provided, among other things, that bunker licenses would be granted to them provided they maintained certain itineraries and made their first and last call on this side of the Atlantic, at New 334 EEPOET or THE WAB TRADE BOAKD. York or San Juan. After the signing of the armistice Key West was substituted for San Juan for the purpose of saving time by short- ening the route. By this arrangement a strict censorship was made possible, and the isolation of- Germany was made still more complete. Effective May 1, 1919, the agTeement regarding itineraries was abro- gated, thus releasing the vessels of these lines from the necessity of calling at ports of the United States. Transportation of Germcun subjects. — One more provision of the general rules should be mentioned which attempted to prevent aid reaching the enemy, namely, that no vessel should without the con- sent of the State Department carry any subject of Germany or her allies. This was to prevent the enemy reservists from reaching their native country. THE CONSERVATION OF TONNAGE. The second main purpose of the control exercised by the Bureau of Transportation over bunker fuel and ships' stores was the conserva- tion of tonnage. As this phase of bunker control has already been treated,^ a mere summary of the means by which this was accom- plished will be sufficient : {a) Sailing vessels not to pass into the submarine zone. (6) Small American steamers not permitted to engage in trans- Atlantic or long voyages. {c) Vessels to be laden to their fullest capacity. {d) Discouragement of long hauls. (e) Attempt to keep vessels actively engaged. (/) Eegulation as to the quality of bunker coal used. {g) Restriction of use of coal for stiffening. (I) Discharge of surplus bunker fuel and ships' stores at foreign ports. («) Control over return trip. SECURING OF ESSENTIAL COMMODITIES. A third object to be obtained by bunker control was the ability to demand, in return for the granting of the license, that certain essential commodities be brought back on the return trip. It was the general rule to require from all neutral and unrequisitioned American vessels leaving ports of the United States a guaranty to return. On February 4, 1918, the War Trade Board resolved that in the granting of bunker licenses an effort should be made to impress upon the owners and charterers of the vessels the. necessity of bring- ing essential commodities on their return trips. The list enumerated at that time included nitrates, wool, rubber, pig tin, hemp, vegetable oils, beans, manganese ore, and jute. On March 11, 1918, the Board voted that the Bureau of Transpor- tation should continue to require, as a condition of the issue of bunker licenses to Norwegian sailing vessels, that they should carry essential commodities on their return voyages to the United States. On March 31, 1918, a definite trade schedule was put into effect for sailing vessels. Lists were drawn up each day of the number of sailing vessels allowed to go into the designated trades. Sailing ' Sfe pp. 119-122. BEPORT OF THE WAR TRADE BOARD. 335 vessels on the Atlantic coast were permitted to go to the West Indies and return with mahogany or sugar, manganese ore, and castor beans. They could take coal and lumber to the east coast of South America and return with wheat, manganese ore, wool, hides, castor beans, rubber, quebracho extract, and coffee. From South Africa they could carry mahoganj' and wool. In the Pacific they could bring nitrates, hides, and castor beans from Chile; mahogany, rubber, hides. and castor beans from Central America ; and wheat, wool, copra, coconut oil, vegetable oils, jute, hemp, chrome ore, nickel mattes, castor beans, and pig tin from the Far East. These measures were gradually relaxed as the need for these commodities ceased to be pressing. On October 14, 1918, the Bureau of Transportation was authorized by the War Trade Board to require as a condition of the issue of bunker licenses that vessels equipped with tank facilities and touch- ing at Philippine ports should bring cargoes of vegetable oil to the United States. This requirement was to apply only to vessels flying the American flag or chartered to the United States or to American citizens. The bureau had on its own initiative been imposing such a requirement for about a month previous to this action by the Board. This requirement was suspended on February 13, 1919. Charcoal made from coconut shells was in great demand for gas masks. There was a scarcity in the United States, but the Bureau of Transportation, through its control of bunker licenses, was able to require schooners returning from the East Indies and the tropics to bring cargoes of coconuts. It was the policy of the Bureau of Transportation in the earlier part of 1918 to require in the case of foreign vessels arriving at ports of the United States that all surplus bunker fuel and ships' stores be discharged before leaving the country. This was primarily to save tonnage, but it also resulted in increasing the amount of such com- modities within the country. This practice was modified during the sununer so as not to apply to vessels of the Allies, and again in November, 1918, to apply only to neutral vessels en route to ports of the northern neutrals. On December 7 it was discontinued even in these cases, provided that a guaranty was secured, if possible, from the Government of the flag involved that if the vessel was bound to a , home port the importation of the excess quantities woiUd be pre- vented. This condition was automatically removed on April 25, 1919, by the withdrawal of the restriction against the discharae of bunker fuel and ships' stores at the ports of the northern neutrals. CONSERVATION OF COMMODITIES. Bunker fuel— The power to withhold a bunker license enabled the War Trade Board to exercise control over cargoes. Among the ar- ticles in the list proclaimed by the President on July 9, 1917, as not to be taken out of the country excepting under license were coal, coke, fuel oils, kerosene, and gasoline, including bunkers. Each vessel tor which a bunker license was issued was entitled to a reasonable amount of bunker fuel. It was somewhat uncertain how much this meant. The bureau made a study of this problem. It obtained information from about 150 steamship companies for about 1,200 vessels. Of these about 1,000 were coal-burning vessels and about 200 were oil 336 REPORT OF THE WAR TRADE BOARD. consumers. The owners were asked to state the gross and the dead- weight tonnage of each vessel, the average sea speed in knots, the corresponding indicated horsepower, the kind and grade of fuel used, and the average daily fuel consumption at sea and in port, and the number and type of engines with which each vessel was equipped. From the data received two tables were prepared, one for the coal- burning vessels and one for oil burners. In each table the vessels were grouped according to size as measured by gross tonnage, and the reported coal or oil consumption of vessels of the same size was averaged for various speeds. From these tables the chart shown on the next page was prepared and was sent, on May 6, 1918, to the agents of the bureau and to the collectors of customs to serve as a rough check upon the quantities of fuel requested for the use of vessels at sea. Instructions were also issued prescribing a method whereby the applicant's statement regarding the amount of bunker fuel needed could be checked accurately whenever the amount ap- peared by,the chart to be excessive. The restriction as to the amount of bunker fuel a vessel could carry was removed on January 13, 1919. Mention has already been made^ of the provision in General Rules No. 1 whereby '' all bunkers received by any vessel shall be used solely for the purposes of the vessel, and no portion of the bunkers shall be landed in any port or transferred to any other ves- sel." One of the purposes of this provision was to conserve bunker fuel. The Fuel Administration wished to conserve fuel by pro- hibiting its use on private yachts. After May 31, 1918, bunker licenses were denied such vessels when operating under the po^Yer of coal or fuel oil. Food supplies.— The Food Administration limited the amount of certain foods which people on shore could consume; it was but fair that those on the sea should also be forced to conserve. The Bureau of Transportation in order to facilitate the regulation of food sup- plies and other ships' stores prepared a circular which showed m detail the allowances to be made. This was sent out on June 1, 1918, to the agents of the bureau and to collectors of customs. A brief sketch of the food restrictions is given. Table I shows the maximum amounts to be allowed per man per day of the enumerated articles. Table II contains a list of articles for which, within certain limits to be explained below, applicants could ask for such quantities as they desired. Table I. Ounces. Butter and butter substitutes 2 Beef 16 Pork 6 Larrt 1 Wheat products 10 Wheat substitutes 8 Sugar 3 Groceries 11 Total (about 3i lbs.) 57 Table II. Veal. Mutton and lamb. Fish, fresh. Fish, canned and salted. Poultry and aranie. Milk. Eggs. The amount of the seven articles in Table II added to the amount of the eight articles listed in Table I was not to be in excess of a • See p. 332. REPORT OF THE WAR TRADE BOARD. 337 total of 5 pounds a day. Stated in another way, a vessel was en- titled to take quantities of the articles in Table II provided that the total of all the articles did not exceed 5 pounds per man per day. In addition to the above articles, a vessel was to be allowed 32 ounces of potatoes and 32 ounces of fresh vegetables and fruits. The circular contained a table showing the ratio at which dried concen- trated food might be substituted or the "^^fSai s In no foods. It also provided for an allowance of ^"f}/^"'^^;^^],'' ,3^,° event, however, was the allowance per man o f '^^'^^Z^, Xms were dav Before granting licenses the agents or collectors of customs were rnstucted to^ssure^hemselves that, the applicants had no laiger food supplies than the amounts to which they were entitled. 10.3.584—20 23 338 EEPORT OF THE WAR TRADE BOARD. On November 10, 1918, the cliange in the foreign situation per- mitted tlie following increases to be made in the daily food allow- ances per man : Wheat products, from 10 ounces to 18 ounces ; sugar, from 3 to 4 ounces ; and beef, from 16 to 24 ounces. These increases raised the total weight of the restricted articles in Table I from 57 to 74 ounces. The total food allowance per man, however, was still limited to 9 pounds per day. On January 13, 1919, all restrictions as to the quantity of food supplies which a vessel was permitted to take were removed. Another method of conserving food supplies through the control aiforded by the bunker license is well illustrated by the instructions sent on August 5, 1918, by the Bureau of Transportation to its agents and to collectors of customs. These instructions provided: (1) All vessels clearing from a United States port for the West Indies and Honolulu shall be allowed only sufficient sugar for the first outward voyage to such foreign port. (2) Vessels clearing for ports in Uruguay, Argentina, Chile, India, and Aus- tralia shall be allowed, upon their first application, wheat flour for a period sulticient to complete the outward voyage. No such vessel on any subsequent voyage clearing for ports of these countries will be permitted to purchase any wheat flour for use as ships' stores at a United States port, except by special permission from the War Trade Board. (3) All cargo vessels clearing from a United States port for ports in Brazil, Uruguay, Argentina, Chile, and Peru shall be allowed to take the following articles sufficient only for the first outward voyage from a United States port to ports of these countries : Beef. Mutton. Veal. Lard. Pork Lamb. Poultry. Eggs. (4) Passenger-carrying vessels are subject to all the above restrictions, with additional regulations that they will cooperate as far as possible and purchase all their supplies for the round trip in foreign ports if their refrigerating ca- pacity is suflicient. In other words, more is expected of a passenger vessel with refrigerating facilities than of ordinary cargo vessels which require ice for the preservation of stores and supplies. It will be noted that these commodities were to be supplied for the first outward trip only. In other words, the policy was to force vessels to secure their supplies entirely at the other end of the voyage. In each case the countries specified are sources of produc- tion for the commodities enumerated. Thus the burden of supplying foodstuffs to vessels maldng these voyages was shifted from the United States to other countries more favorably situated under war conditions. These instructions were canceled on February 5, 1919. ShrpH'' stores. — The policy of using bunker control for the con- servation of food supplies was also used in the case of all kinds of ships' stores. The same circular sent out in regard to the amount of food stores to be allowed contained figures for the average quantities of deck and engine-room stores for steamers for voyages of three months and of deck stores for sailing vessels for voyages of about six months. These figures were furnished as guides "rather than as absolute allotments. The policy of the bureau may he seen from a quotation taken from its circular No. 2 : It will be understood by all applicants for deck, cabin, engine-room and •slop-chest stores that the quantities that should be applied and that will be allowed must depend upon the size and type of the vessel and upon the in- tended voyage. In general, the quantity of stores allowed will depend upon whether the stores in question can or can not be obtained at the forei^^n port or ports of destination; also upon whether the United States authorities re- Kiii-UKT LU<' TMK WAR TRADE BOARD. 339 quive a guaranty that the vessel receiving stores sliall return direct to the United States upon the conclusion of her outward voyage * * * . It should lie understood that vessels will not lie allowed to take out (if the country unnecessary stores nor to take out of the country as stores any articles that are in fact cargo. When vessels are granted new supplies and equipment, such as anchors, chains, boiler or engine parts, the old equipment or parts displaced must be landed before the vessel clears. Likewise, all junk, discarded rope, metal, and rubber, etc., must be discharged before the vessel sails. All restrictions as to the quantity of ships' stores that could be car- ried by ^"essels sailing from ports of the United States were canceled January 13, 1919, except in a few cases enumerated below. On August 5, 1918, a circular letter was sent to agents and col- lectors of customs instructing them to refuse to allow aboard vessels, for use as ships' stores, linen in any form whatsoever. This instruc- tion was not withdrawn until September 17, 1918. On May Ki, 1918, a similar restriction was placed on anhydrous ammonia, and on June 7 aqua ammonia was also included. On July 10, 1918, the restriction was modified to permit a maximum limit of 200 pounds, and this restriction was not removed imtil February '21, 1919. On August 27, 1918, the War Trade Board passed a resolution that no dunnage should be allowed to proceed out of the country on any vessel except under license either as ships' stores or as cargo, and no application for bunkers of an>' vessel should be granted unless all dunnage aboard was so licensed. It declared that dunnage as ships' stores could not be discharged at any foreign port or transferred to anj^ other vessel without special permission from the Bureau of Transportation. Bur- lap and jute bagging or bags, when used either for topping purposes on boarcl grain vessels or for dunnage purposes on board any vessel, should be considered as ships' stores. At first the Bureau of Trans- portation was not gi\ en the authority to permit this burlap and jute bagging to be discharged at a foreign port, but such permission was granted on October 30, 1918. For a number of weeks in November and December, 1918, guaranties were required that the burlap and bagging would eventually be returned to the United States. Effective Februarv 5, 1919, dunnage could be- licensed only as ships' stores, and from this date licenses were so issued by the Bureau of Transporta- tion without restriction of any kind. Linen, ammonia, burlap, and jute bagging were all coimnodities essential for our war program and bunker control was a means taken to conserve them. In order to avoid a shortage of quinine and its salts and cinchona bark and its products, instructions were issued on February 5, 1919, to collectors of customs to check carefully the medicine chests of all vessels and not to permit excessive quantities of these commodities to be carried out of the countrv. Some months later the danger had disappeared, and on May 6, 1919, these instructions were canceled. THE ENFOKCEMENT OF THE REGULATIONS OF THE WAR TRADE BOARD AMD OTHER GOVERNjrENT ORGANIZATIONS. In the discussion of food conservation the cooperation of the bureau in enforcing the food regulations is clearly seen and needs no further expansion. The bureau also aided the Chartering Committee of the Shipping Board in enforcing freight rates. The bureau, at the re- quest of the Chartering Committee, withheld bunker licenses. Ihis was generally done because of the failure of the owners to submit 340 REPORT OF THE WAR TRADE BOARD. their chai'ter to the committee for apiDroval or because the owners at- tempted to load ves.-els at freight rates higher than those fixed by the Sliipping Board. Generally within a few days the owners would submit to the requirements of the Chartering Connnittee and the bunker licenses Avould then be issued. The AVar Trade Board on June -20, 1918, authorized the Bureau of Transportation to withhold bmiker licenses for all vessels which had exacted freight rates on coffee higher than those fixed by the United States Shipping Board. This policy was discontinued on December ICi, 1918. Another freight rate case was that of certain Spanish steamers which weie charging excessive rates for shipments to Spain. When, however, the steamers realized that the bunker licenses M'ould probably be withheld, they fixed a definite rate schedule which was acceptable. Similar pressure was brought to bear to induce a certain Japanese steamship line to carry mail to South Africa on one of its steamships which was about to sail. Mail for South Africa had been accumulating, and as no regular mail boat was available, the Post Office Department made overtures to this line for space on this steanishiii. In spite of the fact that the Post Office Department offered a higher rate of compensation than the owners could have secured for any other freight that might have been offered, the agents held out for a still higher rate. However, the Bureau of Transpor- tation notified the Post Office Department that no bunker license would be granted this vessel until the agents agreed to carry the mail. Shortly after this the agents agreed to accept the mail, and the license was accordingly granted. The Bureau of Transportation gave the final word for a vessel to be allowed to sail from port. This fact caused it to be the agent for enforcing manj^ of the regulations of the War Trade Board. If a question arose at the last moment as to the advisability of allowing a vessel to clear, the Bureau of Transportation caused the ship to be detained. REPORT OF THE WAR TRADE BOARD. 341 Banker liceiixcf: (/ranted l>y the Bureau of Tntnsporldtion, hii iininhcr iin.il ton- MUje, to ilcstinutlonx us inilicatcd, from May 15, IdlS, to Apr. Hi, l!ll!l.' May 1 i-Juiie 1. June. July. August. September, Number of vessels. Gross tormage. Number of vessels. Number of vessels. Number of vessels. Number of vessels. 'Gross tonnage. Trans-Atlantic Allies Trans- Atlantic neutrals Trans-Pacific Allies . 106 7 61 1 30 224 33 96 36 71 42 61 1, 033, 726 12,895 234,060 751 38, 401 204,686 83,791 238, 129 64,833 256, 580 160, 448 129, 253 298 66 118 10 49 201 74 207 111 120 85 72 894 91 220 14 35 188 101 205 94 122 101 100 353 71 124 15 29 IS.") 99 175 104 143 124 121 372 131 12 25 138 88 144 74 no 116 95 2,117,(32 187, 867 457, 290 27, 075 44,413 187, 217 182,053 274, 155 140, 137 345, 385 402,580 145,559 Trans- Pacific neutrals Alaska Canada and Newfoundland. Cuba East coast. South America. . Mexico West coast South .America. West Indies . . World-wide Total 828 2, 457, 553 1,411 1, 665 1, 543 1, 363 4,511,363 October. November. ' December. Destination. Number of vessels. Gross tonnage. 2, 259, 52.5 382, 222 635, 501 64, 012 57, 201 234,275 184,025 365,849 193, 607 439,891 529, 567 133, 377 Number of vessels. 382 107 160 24 17 134 90 173 102 156 125 109 Gross tonnage. Number of vessels. Gross toimage. Trans- Atlantic Allies . . 397 109 183 25 33 202 118 186 92 141 164 121 2,303,453 314,842 583, 534 57, 951 24, 185 173,111 151,294 314,918 212, 021 516, 553 438, 956 122, 635 478 130 119 26 20 105 83 166 116 122 94 124 T- 4-- Trans- Atlantic neutrals — Trans-Pacific Allies 433,961 374 042 Alaska . .50,015 Central America . . . 144 243 Cuba 300 749 East coast South Africa 226 563 416, 277 West coast South America West Indies World-wide 2(M,S7fi 1.53,850 Total . . 1,771 5,479,052 1,579 5,212,453 1,583 5, 246, ,-)12 January. February. March. Api . 1-Apr. 1& Destination. ! Nmn- I bcrof I vessels tomiage. ^''^i^r"/^. Trans-Atlantic Allies Trans-Atlantic neutrals - .1 Trans-Pacific Alli« s i Trans- Pacific neutrals. .. Alaska Canada and Newfound- land Central Ameiica Cuba East coast South America Mexico West coast South Ame i ica West Indies Woild-wide 631 ' 1.59 237 13 21 { 108 100 254 166 172 79 I 196 I 3, 277, 952 556, 390 950, 363 51, 026 51, 057 199, 742 189. 833 522, 272 479. 563 .523; 290 251. 856 304; .366 404 117 208 6 22 133 117 66 133 G™^« ta"f tonnage, i ^I^'^"' 2, 160, 504 414, 822 786,121 26,672 32, 864 126.286 142; 574 3S4. 761 34S; 347 3S8, .^23 206, 1£S 163,068 3.54 127 164 9 32 80 82 l.J9 97 112 64 137 Total . 7,3.57,710 ! 1,665 5.180,600 dross tonnage. 1.902,785 518, 953 695,847 35, .555 7i;0S6 94,613 170,478 318,018 236,4.-)5 386, 865 247,336 230; 316 Num be I of vessels. 241 72 134 13 47 10 79 46 61 102 90 Groes tormage . 1, 138. 874 266, 8S2 665,661 61,418 59, 080 57, 290 15,356 131,606 156,684 119. 38? 63; 512 178; 608 399, .83 7 ■1907,346 978 3,184,195 ' On Apr. 20 the Bureau of Tianspoitalion discontinued compihng the .statistics contained in this table. Note.— The figures for the gross tonnage of the vessels involved are given in this and the following table by months, excepting for June, July, and August. The Bru-eau of Transportation durmg these_ month,^ compiled its tonnage statistics in "net tons instead of in gross tons. The total net tonnage for these months was: 2,714,3o7; in June 3,451,432 in July; and 3,090,855 in August. The tables give an indication of the amotmt of tonnage over which the War Trade Board had control through its power of granting bunker licenses. 342 KEPOKT OF THE WAR TRADE BOARD. Bitnl-er licenses granted iij the Bvrenu of Trnnsportation, by num'ber of each nationnlity and gross tonnofic, from May 15, 1918, to Jan. 1, 1919. May 15- June 1. June. July. August. September. Flag. Number of vessels. Gross tonnage. Number of ve^els. Number of vessels. Number of vessels. 659 1 10 10 432 4 2 Number of vessels. Gross tonnage. American 32S 766, 810 693 2 3S7 2 603 643 2 4 413 1 1 1,348,784 8,457 Belgian Brazilian British Chilean 1 275 5 • 9.481 6,456 1,032,276 15,627 ii 7 53S 6 4 1 9,198 32, 463 1,929,930 606 1,237 1 1 12 72 11) 38 2 10 20 47 15 1 137 1 72 2 8 35 2 15 14 58 9 2 107 125 Cuban Danish 13 39 11,786 92, 403 20 67 4 S 26 4 16 15 39 6 3 164 25 76 1 12 38 2 20 15 sa 12 2 126 1 6 5 12 21 37 1 12,744 142,963 2,220 Dutch French Creek Honduran Italian Japanese 2 12 1 8 9 17 6 2,493 46,909 3,562 14,277 44,070 122,855 9,175 45,784 119,045 10, 022 24,837 81,074 307, 465 Mexican 13,812 3,120 Norwegian 84 196, 818 267,517 Peruvian Portuguese Russian 6 4 17,402 9, 916 3 2 4 16 20 1 1 4 2 22 26 1 1 4 2 ,S 17 29 15,403 6,589 13,776 Spanish S'.vedish Venezuelan 7 9 1 32,118 23,017 102 51,226 62, 968 Total 828 2, 457,. 553 1,411 1,665 1,543 1,363 4,611,363 December. Total WAR TRADL BOARD CHAIRMAN BUREAU OF ENEMY TRADE mmm director DIRECTOR FINANCIAL AND MISCELLANrOUS COMMERCWL TRANSACTIONS EXPORTS, IMP0RT5, Am tangible: mns) IN AMERICA RELIEF TRAN5MI5SIOM OF FUNDS COMMUNICATIONS TO Vm TFRRITORY COMMUNICATIONS TO NEUTRAL COUNTRIES OFFICE MANA&ER 103584—20. (To face page 354.) i:: ::% Si ii k;}* '6 UU REPORT OF THE WAR TRADE BOARD. 343 ORGANIZATION OF THE BUREAU OF TRANSPORTATION. The accompanying chart is intended to picture tlie organization of the bureau as it was at the time of the armistice, November 11, 1918, tlie time of the greatest activity of the War Trade Board. Director. — The work of the bureau was carried out under the immediate supervision of the director. It was his duty to see that the bureau carried into effect the rulings of the War Trade Board in so far as they related to the regulation of the movement of ves- sels, the licensing of bunker fuel and ships' stores, and the transfer of ownership of vessels. Assistant directors. — The director was aided in his work by two assistant directors. They took an active part in formulating the policy of the bureau, and in cases when special instructions were called for as to the granting or refusing of licenses for bunker fuel or ships' stores the cases were referred to them. Assistants to director. — There were also two assistants to the di- rector. It was the special function of one of these to prepare the various forms and rulings issued by the bureau. The other com- piled all reports of the bureau. Administrator. — The administrator of the bureau was in charge of the remaining divisions of the Washington office. It was his duty to keep the office machinery running smoothly and see that policies were properly carried out. Mail distributor. — All mail for the Bureau of Transportation was sent from the main mail room of the War Trade Board to the mail distributor. (Not shown in the organization chai't.) It was his function to route the mail. If it was a bunker form, it was sent to the person in charge of the review of licenses; otherwise it was sent to the correspondence files. License review and co-rrectioi] of hunker forms. — The bunker forms were those which had been filled out by the applicants for licenses for bunker fuel and ships' stores. The person in charge of the review of licenses looked over the forms to see if they needed correction. After meeting with his approval the forms were sent to the Division of Eecords. Division, of Records. — The Division of Eecords transferred data from the bunker forms to voyage cards. These contained the com- plete record of the issue of bunker licenses to all vessels and served as an index for both the bunker form files and the ship files. These cards showed the movements and the cargoes of all vessels to which bunker licenses were issued. This division kept a record of all guar- anties to return to the United States and notified the assistant direc- tors in charge of the issue of bunker licenses whenever a vessel failed to return by the time it was due. An alphabetical list was kept of the signers of the agreement to abide by the rules of the Bureau of Transportation. A record was also kept by this division of all vessels owned by or requisitioned or chartered to the United States Shipping Board, together with all charter approvals made by the Chartering Committee of the Shipping Board. . Bunker form /ife.— The bunker forms after being thus recorded were sent to the person in charge of the bunker form hie. Here they 344 EEPOET OF THE WAK TRADE BOARD. were filed under the number of the issuing port — eacli port liad ittJ own number — and according to the serial number of the licenses issued at that port. The invoices for ships' stores which applicants were required to furnish were filed with the bunker licenses except for the i3ort of Xew York. A separate file was made in this case because of the large number of such invoices. Division of Tabulation. — The Division of Tabulation compiled data ill regard to the licenses authorized by the bureau. The licenses reported to the bureau by its agents or by the collectors of customs at the various bunkering port's were all tabulated. The division sub- mitted a monthly rejjort to the chairman of the War Trade Board showing the number of licenses granted and the total tonnage of vessels lie ensed by flag and destination. A monthly report was also submitted showing the amount of bunkers loaded at the various United States ports during the month. These statistics were com- piled from data in the bunker form file. Dicis/on of Correspondence a/)id Ships'' Files. — All correspond- ence other than bunker forms was turned over by the mail dis- tributor to the Division of Correspondence and Ships' Files. In case an inquiry came in for special instructions regarding the issue of a license, the letter was turned over to one of the assistant directors who had charge of the cases involving special instructions. After the case had been passed upon the correspondence was filed by this division. In the same way correspondence relating to the transfer of ownershii^ in vessels was first turned over to the division in charge of the approval of the sale of vessels, and after being acted upon was filed with other corresj^ondence connected with the case. The general correspondence exchanged between the bureau and its agents with American diplomatic officials throughout the world, with other branches of the Government, and with individuals or firms inter- ested in the regulations of the bureau was filed by this division. A card index file was kept, relating to confidential reports on shipowners, masters of vessels, and parties interested in the transfer of ships. This division also had charge of the ship files. All cor- respondence relating to any vessel was filed under the name of the vessel. The nationality, type, and tonnage of the vessel were indi- cated. Dailu record of licenses granted hj/ special iri.\tnictions. — A daily record of bunker licenses granted hj special instructions was kept. This information was obtained from the Division of Correspondence and Ships' Files. From this dailj^ record a monthly record was com- piled. A daily record was also kept showing the bunker licenses pending. This covered those cases in which for some reason the authority for granting the license had been temporarily withheld. All of these records were discontinued on April 19, 1919. Di/rinion of Ship Transfers. — Mention has been made of the Divi- sion of Ship Transfers. The War Trade Board until December 6, 1918, had joint authority with the Shipping Board to pass on the transfer of ownership of ships. The War Trade Board exercised its authority through the Bureau of Transportation, and this division was organized to carry on the work. After December 6 the approval of the Shipping Board alone was required and this division was no longer maintained. \^J.VA WJ? Lxiji wAii iitADE BOAED. 345 Auditor of ship stores. — The function of the auditor of ship stoves was to check up the amount of stores carried by any vessel and to see that no more was taken than should be, considering the number of persons on board and the length of the trip. Division of Supplies. — The Division of Supplies furnished the members of the bureau with the supplies and equipment necessary to carry on their work. It also was responsible for keeping the agents of the bureau located at the various branch offices supplied with forms and other material. Branch agencies. — The Bureau of Transportation maintained its own agencies at New York, Boston, Mobile, Los Angeles, San Fran- cisco, and Seattle. At the other ports of the country the work of the bureau was carried on bv the collectors of customs. THE BUREAU OF ENEMY TRADE. CREATION OF THE BUREAU OF ENEMY TRADE. The Bureau of Enemy Trade was established by the War Trade Board on October 15, 1917, for the purpose of carrying out certain of the provisions of the trading with the enemy act, approved Octo- ber 6, 1917. A temporary acting director was appointed and author- ized to organize and assume charge of the bureau. He continued in charge of the work of the bureau until December 5, 1917, when by a resolution of the War Trade Board, passed on that day, a permanent director was appointed, succeeding the acting director and was given autliority to take all necessary steps to complete and perfect its organization and to cause its functions to be properly and effectively exercised. i;e>'ERal rviiruSEs a^d i'(nvEES. The trading with the enemy act made it necessary for all indi- viduals, firms, corporations, and other bodies of individuals in the United States who desired to take part in any commercial trans- action, or to have any business dealings, communication, or inter- course, either directly or indirectly, with an " enemy " or " ally of enemy," first to obtain a license therefor from the President. By Executive order of President Wilson, under date of October 12, 1917, the authority of the President to license certain acts of trade, other- wise unlawful under the act, was vested in the War Trade Board, and by resolution of the War Trade Board, passed on December 7, 191 T, the following powers were conferred upon the director of the Bureau of Enemy Trade: («) To grant or refuse or withhold licenses to trade with, to, or from, or for, or on account of, or for the benefit of any " enemy " or " ally of enemy." (&) To grant, or refuse, or withhold licenses to continue to do business to " enemies " or " allies of enemies," other than "enemy " or " ally of enemy " insurance or reinsurance companies, doing business with the ITnited States through an agency or brancli office, or otherwise, applying therefor within 30 days after October 6, 1917. (c) To grant, or i-efuse, or withliold licenses to any "enemy" or "ally of enemy " or ijartnership, of which an enemy or ally of enemy is a member, or was a member at the beginning of the war, to assume or use any name other than that by which such " enemy " or " ally of enemy " or partnership was ordinarily jjnown at the beginning of the war — To such extent and upon such terms and conditions as said direi'tor shall deem advisable. The Bureau of Enemy Trade therefore received applications for and issued, or refused to issue, licenses involving trading with, or on behalf of, or for the benefit of an enemy or ally of enemy, within tlie meaning of those terms as defined by the trading with the enemy art and so far as sucli transactions were within the jurisdiction of the AVar Trade Board ; and administered the control, by license, of the continued conduct of business in the United States by enemy concerns. aatfVKi: or THE WAR TRADE BOARD. 347 CLASSIFICATION AND DISTRIBUTION OF THE A\'ORK. As a result of the passage of the trading with the enemy act, the publication of the Executive order of October 12, 1917, and the publication of the enemy trading list, a large volume of correspond- ence and applications for licenses to trade with " enemies " or " allies of enemies " was received by the Bureau of Enemy Trade. To facili- tate the handling of such work, the bureau was organized in various divisions, each handling a particular class of applications or per- forming- certain specified work, under the supervision and control of the director, as follows : (1) E.xports and Imports. (2) Financial find Commercial Transaction.s. (3) Patents. (4) Relief, Transmission of Funds, and Commuuications. (5) Tangil)le Assets in America. ^6) New York Office. KXPOETS AND IMPOETS DIVISION. Tlie work of this division was handled largely in conjunction with the Bureau of Exports and the Bureau of Imports. Exports. — When it was desired to export an article of merchan- dise to an ''■ enemy " or " ally of enemy " in a neutral country, the application for license in connection with such transaction was passed upon by both the Bureau of Exports and the Bureau of Enemy Trade. Prior to the proclamations of the President issued on Feb- ruary 14, 1918, by which the exportation and importation of all articles of commerce wei'e made subject to license restrictions, those transactions involving trading ^^'ith the enemy but not involving a controlled commodity were passed upon solely by the Bureau of Enemy Trade. The general policy of the bureau during the period of hostilities was to refuse export licenses involving enemy trading, and very few were issued. The following is illustrative of the exceptions that were made: When the goods to be shipped ^vere specially manufactured for the export trade and were of a particular quality bearing a distinctive mark ordered by the purchaser abroad, applications for export licenses were granted, provided the order had been placed by the American merchant prior to the declaration of war by the United States or prior to the placing of the foreign firm on the enemy trad- ing list, and provided the American firm acted in entire good faith in entering into the transaction. Such licenses were issued solely for the purpose of preventing loss or hardships falling upon the Ameri- can manufacturer or exporter who was earnestly trying to carry on his business in good faith and may have been put to considerable expense to provide the goods in question without knowleclge of the character of his consignee. During the period of the armistice gen- eral enemy trade licenses were issued to authorize trading with the countries opened up by interallied authorities to trade, and with per- sons formerly upon the enemy trading list. /miwor/'.v.— Likewise, Avlien it was desired to import an article which would involve trading with an "enemy" or "ally of enemy," both the Bureau of Imports and the Bureau of Enemy Trade 348 REPORT OF THE WAR TRADE BOARD. were required to pass upon the application for license. As in the case of exports prior to February 14, 1918, only the Bureau of Enemy Trade was required to act in cases involving articles not then on the restricted list. Here also the general policy was to refuse such applications for licenses, except where the pai'ticular importation was required to meet the urgent needs of the United States, or where the goods to be imported were in liquidation, in whole or in part, of debts due to persons, firms, etc., in the United States, growing out of transactions entered into prior to the passage of the trading with the enemy act. The bureau discouraged this method of collecting a debt, on the ground that it afforded oppor- tunit}' to the enemy to keep his organization in operation, even though he might not realize an immediate profit. It was discovered also that the existence of such a license Avas occasionally used by tlie " enemy " concerned therewith as the basis of propaganda and of statements to the effect that he had a general license to trade with persons in the United States, even though his name appeared on the enemy trading list. Such circumstances tended to deti'act from the efficiency of the trade restrictions imposed by this country, and for that reason the bureau encouraged the collection of proper debts in the form of remittances which did not liquidate enemy funds held on deposit in the United States. However, where it was necessary to issue such a license, due to the inability of the " enemy " to make payment in any other form, it was drawn up in conjunction with a license issued by the Bureau of Imports, covering the commodity to be shipped. These licenses were issued after a conference attended by representatives of the Bureau of Imports, Bureau of AVar Trade Intelligence, and Bureau of Enemy Trade. In May, 1919, the policy was adopted of issuing import licenses for a limited list of commod- ities from Germany, in order to aid in the establishment of credits to pay for imports of food into that country. At this time the practice was begun of referring applications for imports from Germany to the Bureau of Research and Statistics. FINAKCIAT, AND COMMERCIAL TRANSACTIONS DIVISION. The work of this division was concerned primarily with financial transactions by banks and financial institutions in the United States which involved, either directly or indirectly, persons coming within the category of " enemies " or " allies of eneanies." A number of the questions which arose in connection with such transactions were later covered by rulings issued by the War Trade Board. The applications for licenses received by this division involved, among others, the following questions : (1) The adjustment of various financial transactions with enemies outstanding when the act was passed. (2) Requests by American banks, or their foreign branches, for permission to deal with banks in neutral countries, where it was pre- sumed that tlie banks in neutral countries had some relations with " enemies " or " allies of enemies." (3) Payment of interest and dividends on securities held by American institutions for account of " enemies " or " allies of ene- mies," where the property Iiad been reported to the Alien Property Custodian. REPORT OF THE WAR TRADE BOARD. 349 (4) Tlie acceptance or paj-ment in the United .States of drafts or checks clraAvn in favor of Americans on funds to the credit of an enemy or ally of enemy, or upon which such person appeared as drawer or inclorser. (5) Transactions involving prisoners of war and interned enemy aliens in this country. As such persons were declared enemies by presidential proclamation an enemy trading license Avas necessary to cover business transactions carried on by other persons in this coimtry for account of such interned pers(_)ns. Communications relative to such matters were referred to the Bureau of Enemy Trade by the War Department. In May. 1919, an enemy trade license was issued authorizing trade and conmiunication with formerly interned aliens in this country who had been released from the custody of the War Department. In granting licenses in connection with such transactions it was necessary to protect the interests of the Alieir Property Custodian in any funds accruing therefrom for " enemy " account. PATENTS DIVISION. The work of this division was roughly divided into two classes: (A) Applications for licenses made directly to the War Trade Board for the following purposes : (1) Forwarding of communications ultimately destined to enemy or ally of enemy countries, with reference to enemy-owned United States patents. (2) To continue the performance of contracts, between American citizens and corporations, with enemy own- ers of United States patents. These were of three kinds : (a) To continue the manufacture, sale, etc., of goods made under the enemy-owned patents ; (&) To pay or collect royalties on account of enemy owners of United States patents ; (c) To contract or otherwise act under enemj'-owned United States copyrights or trade-marks. (B) Communications relating to American-owned enemy and ally of enemy patents were licensed by the Federal Trade Com- mission "and sent to the War Trade Board for forwarding undei' its license. Communications with reference to pat- ent matters originally received by the War Trade Board for forwarding were carefully investigated Ijy the Bui'eau of Enemy Trade, and held for 60 days as an additional safeguard against the forwarding of information of value. Communications received from the Federal Trade Cony mission were forwarded at once, as a matter of course, as it was understood that when received they had already been held 60 days. In case, however, the communication di- rected the payment of enemy patent fees it was not for- warded until an investigation was made of the existence of patent, the necessity of the payment of the fee, and the character of the sender. The work of the Patents Division practically came to an end when on April 11, 1918, the President issued an Executive order revoking 350 KEPOET OF THE WAR TRADE BOARD. the authority given to the Secretary of the Treasury, and by him delegated to the War Trade Board on November 23, 1917, to issue licenses to send communications outside of the United States in- tended for an enemy or ally of enemy, in any way relating to patents, trade-marks, copyrights, etc., and revoking the authority of the Fed- eral Trade Commission to issue licenses to citizens or firms in the United States to file or prosecute applications for patents, trade- marks, and copyrights in enemy or ally of enemy countries. BELIEF, TRANSMISSION OF FUNDS, AND COMMUNICATIONS DIVISION. The work of this division was carried on in accordance with ar- rangements made by the Bureau of Enemy Trade with the State Department, Censorship Board, etc. It may be summarized as follows : (1) Applications for leave to communicate with persons in enemy territorjr, including territory now occupied by the arme.d forces of the enemy. Such applications were numerous. When granting licenses -in connection with such applications, necessary precautions were taken against the sending of information of value to the enemy, and when in proper form, duly licensed by this bureau and ready for transmission, such communications were turned over to the State Department for forwarding through diplomatic channels. (2) Applications by various relief societies, individuals, etc., for permission to send funds for the relief of destitute and starving persons in Poland, Palestine, and other ter- ritory occupied by the forces of the enemy; and to prisoners of war in Germanj^. Such funds were trans- mitted through agencies in neutral countries approved l)y the State Department and were limited both as to the aggregate amount which might be sent in one month and as to the sum which any one family or person might receive by waj' of such relief. (3) Applications for licenses to send remittances to Germany on behalf of libraries in the United States, for the pur- pose of obtaining German publications. A license was granted to the American Library Association to take charge of the importation of '' enemy '' or " ally of enemy ■' publications needed for research work in public libraries, colleges, etc. Applications for the importation of Ger- man publications were referred to this association and the work was carried on satisfactorily by it. (4) Applications for leave to send communications or remit- tances to German}' and Austria, in order to assist Ameri- cans or to protect the interests of American citizens, firms, or corporations in those countries. Such communications and remittances when licensed by this bureau were for- warded through the medium of the State Department. All letters addressed to foreign countries and all outgoing and incoming cable messages which were necessary for the consumma- tion of any negotiations licensed by the Bureau of Enemy Trade were passed upon by the bureau, and a careful scrutiny of such com- REPORT OF THE AVAR TRADE BOARD. 351 iruiiiioations was exercised to prevent a licensee from acting upon too broad a construction of his license or sending inadvisable statements to the addressees. This part of the work of the bureau was carried on m close conjunction with the Cable and Postal Censorship Boards TANGIBLE ASSETS IN AMEHICA DIVISIOX. The work of this division was handled in conjunction with the Alien Property Custodian. It concerned chiefly the handling and disposition of tangible property located in the United States^ and all moneys or other things of value realized or accruino- therefrom, m any wise belonging to an enemy or in which an eneniv might have an interest. Such work involved, among other duties, 'acting upon : (1) Applications by enemy concerns, other than insunmce or reinsurance companies, for permission to continue to do business in the United States. The act required the filing of such applications within 30 days after the passage of the act. This period of time having expired, such appli- cations were either — (a) Denied; or (h) In the case of copartnerships having enemy or ally of enemy partners, licenses in some instances were granted provid- ing for the liquidation of the interest of the enemy part- ners in_ such concerns, and notifying the Alien Property Custodian and holding all proceeds arising in connection therewith subject to his orders in the premises. (c) Temporary licenses were issued in some cases, upon certain conditions and under certain restrictions, to copartner- ships having an enemy or ally of enemy partner, in in- stances where the Alien Property Custodian did nut deem it expedient to take over the business immediately. (2) Applications by persons or corporations in the United States for leave to continue to act in fiduciary capacities for enemies or allies of enemies. In such instances licenses were granted or withheld according to the facts in each case and in conformity witli policies laid down in con- junction with the Alien Property Custodian. (3) Applications for licenses covering the sale of personal prop- erty, held for the account of enemies. Licenses were granted upon such applications upon the condition that any proceeds of sale arising in connection with such trans- actions should be reported to and held subject to the orders of the Alien Property Custodian. (4) Applications for the payment of annuities or allowances to persons in the United States to be charged against credits established by banks or financial institutions in the United States for enemy account. Licenses to make such pay- ments were granted in conformity with a policy adopted in conjunction with the Alien Pi-operty Custodian. NEW YORK DIVISION. This branch of the Bureau of Enemy Trade was created for the purpose of furnishing prompt and ready assistance and advice to the bankers, merchants, and business men of Xew York affected by the trading with the enemy act. 352 EEPOKT OF THE WAK TRADE BOARD. SELECTED CASES SHOAVING THE NATURE Or POLICIES PURSUED BY THE BUREAU. The bureau permitted the payment of premiums on life-insurance policies issued to " enemies " on the ground that such a course pro- tected the insurance c-ompanies from the derangement of their cal- culations and consequent loss by the lapse of policies covering com- paratively good risks where the enemy might decline to renew pay- ments after the war, demand the surrender value of his policy, and take out a new policy elsewhere when such a course might be more advantageous to him than the payment of all back premiums. To facilitate the extension of American interests abroad and encourage the investment of American capital in foreign countries, with a view to the extension of our foreign commerce then and after the Avar, the bureau, whenever feasible, upon application of the American concern, ]3ermittecl the purchase of " enemy" prop- erties by American firms, when it appeared that American iriterests on the whole would profit by the transaction. A method of pay- ment as little beneficial to the " enemy " as possible was M^orked out. Such transactions were submitted to the Interallied Conference, de- scribed hereinafter in detail. Certain American firms which before the war carried on the im- portation of merchandise manufactured in Germany or Austria found themselves in a position of embarrassment after April, 1917, due to the retention of certain consignments in Holland, Avhich goods had been paid for — in some cases for several years — and which the Americans for one reason or another had been unable to ship to this country. Many of these firms, for reasons senti- mental or economic, desired to sell their merchandise in Holland, and the Bureau of Enemy Trade developed a plan whereby such transactions might be carried out, which Avas briefly as follows: The ^Vmerican firm desiring to effect the sale of goods stored in Holland Avas required to file an affidavit Avith the "bureau stating that no person in enemy territory had any interest in or connec- tion Avith such merchandise by Avay of OAvnership, lien, aclvances made, or in any other manner. It Avas further agreed that the goods should be sold only in Holland, under the supervision of the Netherlands Overseas Trust, that no "enemy" should benefit in any Avay from such transaction, and that an affidavit to that effect should be given by the purchaser prior to the sale to the representa- tive of the War Trade Board in Holland. Where these conditions Avere agreed to and all circumstances of the case appeared favor- able, the interested firms Avere notified that thev might proceed Avith the sale of their merchandise, and the bureau cabled the details of each case to the War Trade Board representative at The Hague, so that the sale might be made and the proceeds sent to America. Proper provision was made for the passage of communications bearing on these matters. In this way American traders were per- mitted to dispose of their merchandise, sometimes at a considerable profit, and large amounts of capital were thus released for use in this country. REPORT OF THE WAR TRADE BOARD. 353 COOKDINATIOK OF ALLIED AND UNITED STATES POLICIES OF ENEJIT TRADE LICENSES. Uiiclei- a resolution of the War Trade Board of April 29, 1918, tlie lureaii entered into negotiations with the enemy trading license authorities of Great Britain, France, and Italy, and an arrangement was made whereby prior to the granting of any enemy trading licenses by any of the countries involved the applications" for such licenses were submitted to a conference composed of representatives of each of the above Governments and of the United States. This conference considered the cases presented by the representatives of the various countries, and made recommendation as to the action to be taken, which was communicated to the Government present- ing the application. The action of the conference was not bind- ing but was generally followed. A conference sat in Washington to consider cases originating in any of the four countries above named, in which the locus of the transaction was in the Western Hemisphere; a conference in London considered cases in which the locus of the transaction was in Norway, Sweden, Denmark, or Hol- land; and a conference in Paris considered cases where the locus of the transaction, was in Spain, Switzerland, or Morocco. A system was arranged whereby, through cable communications, the gist of the applications received by the bureau here, and which came within the purview of the London and Paris conferences, were communi- cated to the representatives of the United States in the respective conferences in those places. The action of the conference was cabled back to Washington. The conference plan smoothed out many difficulties which existed previously. There were many cases where the various allied coun- tz'ies were acting upon inconsistent policies — that is, permission was granted by one Government to carry out a transaction with a black- listed concern in a certain foreign country, while another of the allied countries was refusing to allow such transactions. This natu- rally led to a considerable amount of damaging enemy propaganda in the country in question, calling attention to these inconsistencies, hanging upon them accusations of bad faith between the Allies, and pointing to them as examples of the use of the enemy trading restric- tions to further the commercial policies of one of the allied coun- tries at the expense of another. The undesirability of such propa- ganda was obvious, and the only method in which it could be made impossible was the one adopted — complete cooperation and consulta- tion prior to the granting of enemy trading licenses. This policy was a logical outgrowth of the policy of coordination of the enemy trading lists of the Associated Gt)vernments. There was a further and almost equally important advantage gained from this practice. The conference furnished a clearing house for ideas and information with regard to various situations which might arise. It-often happened that after a reasonable amount of investigation with reference to some transaction in the northern neutral countries the bureau could see no objection to permitting it to go through. The result of a conference with the English and French on the matter might bring out numerous points with which they were familiar with regard to the case which might entirely change the attitude of the bureau. 103584—20 24: 354 EEPOET OF THE WAR TRADE BOARD. VOLUME OF BUSINESS TRANSACTED. At the outbreak of the war numerous business transactions were in the course of procedure, in which "enemy" persons, either in enemy territory or on the enemy trading list, were involved, and which merchants in this country desired to complete. These brought a large number of applications to the bureau during the period immediately following its organization. These applications, how- ever, were cleared up in the course of time and the bureau was con- cerned thereafter for the most part with de novo transactions in which thei-e was some circumstance which led the American making the application to believe that his case was such that an exception should be made to the usual rule of no trading with enemy persons. The following table indicates the total amount of business that passed through the Bureau of Enemy Trade from the date of its organization to May 31, 1919 : Applications for enemy trading licenses received hy Bureau of Enemy Trade from date of organisation to May SI, 1919. Applications received . Licenses issued Applications refused . . Applications cancelled Applications pending . Oct. 15 to Dec. 31, 1917. 5,475 1,888 1,138 801 1,648 Total to Sept. 30, 1918. 18,858 10,681 4,385 3,147 645 Total to Oct. 31, 1918. 19, 679 11, 367 4,541 3,256 515 Total to Nov. -30, 1918. 20,320 11, 894 4,630 3,436 360 Total to Dec. 31, 1918. 20,911 12,221 4,751 3,562 Total to May 31, 1919. 22, 329 13, 185 6,010 3.984 63 The organization chart facing this page represents the organiza- tion of the bureau at the time of the signing of the armistice. SECTION n. NUMBER OF EMPLOYEES, JULY 1917,TO JUNE 30, 19!9. ^'^rr^rr^ r^ 19J9 TOTAL EMPLOYEES 108384—20. (To face page 422.) WASHINGTON ONLY l^ART VI. APPENDIX. 855 EXHIBIT I. LAWS, PRESIDEKTIAL PE0CLA3IATI0>;S, AND EXKCUTIVE ORDERS GRANTING THE POWERS UNDER WHICPI THE AVAR TRADE BOARD FUNCTIONED. Section I. Extract — TiUe YII of the " Espionage Act," approved June 15, 1917. [Public — No. 21—65111 Congress— H. R. 291.] An act to punisli acts of interference with the foreign relations, the neutrality, and the foreign commerce of the United States, to punish espionage, and better to enforce the criminal laws of the United States, and for other purposes. Title \ai. CERTAIN EXPORTS IN TIME OF WAR UNLAWFUL. SectioxX 1. Whenever during the present war the President shall find that the public safety shall so require, and shall make proclamation thereof, it shall be unlawful to export from or ship from or take out of the United States to any country named in such proclamation any article or articles mentioned in such proclamation, except at such time or times, and under such regulations and orders, and subject to such limitations and exceptions as the President shall prescribe, until otherwise ordered by the President or by Congress: Provided, ftoiff^'er, That no preference shall be given to the ports of one State over those of another. Sec. 2. Any person who shall export, ship, or take out, or deliver or attempt to deliver for export, shipment, or taking out, any article in violation of this title, or of any regulation or order made hereunder, shall be fined not more tkan .$10,000, or, if a natural person, imprisoned for not more than two years, or both ; and any article so delivered or exported, shipped, or taken out, or so attempted to be delivered or exported, shipped, or taken out, shall be seized and forfeited to the United States ; and any officer, director, or agent of a corporation who participates in any such violation shall be liable to like fine or imprisonment, or both. Sec. 3. Whenever there is reasonable cause to believe that any vessel, do- mestic or foreign, is about to carry out of the United States any article or articles in violation of the provisions of this title, the collector of customs for the district in which such vessel is located is hereby authorized and empowered, subject to review by the Secretary of Commercv, to refuse clearance to any such vessel, domestic or foreign, for which clearance is reciuired by law, and by formal notice .ser\ed upon the owners, master, or person or persons in com- mand or charge of any domestic vessel for which clearance is not required by law, to forbid the departure of such vessel from the port, and it shall thereuiMjn be unlawful for such vessel to depart. \A'hoever, in violation of any of the pro- visions of this section shall take, or attempt to take, or authorize the taking of any such vessel, out of port or from the jurisdiction of the United States, shall be fined not more than .-flCiJOO or imprisoned not more than two yeais. or both ; and, in addition, such ves.sel, her tackle, apparel, furniture, equipment, and her forbidden cargo shall be forfeited to the United States. Section II. [Extract from the "Trading with the enemy A.-t," approved Oct. C. 1917. Public— Xo 91— 65th Congress — 11. R. 4960.] in act to define, regulate, and punish trading with the enemy, and for other purposes. Be it enacted by the Senate and House of Representatives of the United States of America in Congress assemUed, That this act shall be known as the " Trading with the enemy Act." Sec. 2. That the word "enemy," as used herein, shall be deemed to mean, for the purposes of such trading and of this act — .507 358 REPORT OF THE WAR TRADE BOARD. (a) Any individual, partnership, or other body of individuals, of any na- tionality, resident within the territory (including that occupied by the mili- tary and naval forces) of any nation with which the United States is at war, or resident outside the United States and doing business within such territory, and any corporation incorporated within such territory of any nation with which the United States is at war or incorporated within any country other than the United States and doing business within such territory. (b) The Government of any nation with which the United States is at war, or any political or municipal subdivision thereof, or any officer, official, agent, or agency thereof. (c) Such other individuals, or body or class of individuals, as may be natives, citizens, or subjects of any nation with which the United States is at war, other than citizens of the United States, wherever resident or wherever doing business, as the President, if he shall find the safety of the United States or the successful prosecution of the war shall so require, may, by procla- mation, include within the term " enemy." The words " ally of enemy," as used herein, shall be deemed to mean — (a) Any individual, partnership, or other body of individuals, of any na- tionality, resident within the territory (including that occupied by the military and naval forces) of any nation which is an ally of a nation with which the United States is at war, or resident outside the United States and doing business within such territory, and any corporation incorporated within such territory of such ally nation, or incorporated within any country other than the United States and doing business within such territory. (b) The Government of any nation which is an ally of a nation with which the United States is at war, or any political or municipal subdivision of such ally nation, or any officer, official, agent, or agency thereof. (c) Such other individuals, or body or class of individuals, as may be natives, citizens, or subjects of any nation which is an ally of a nation with which the United States is at war, other than citizens of the United States, wherever resident or wherever doing business, as the President, if he shall find the safety of the United States or the successful prosecution of the war shall so require, may, by proclamation, include within the term " ally of enemy." The word " person," as used herein, shall be deemed to mean an individual, partnership, association, company, or other unincorporated body of individuals, or corporation or body politic. The words "United States," as used herein, shall be deemed to mean all land and water, continental or insular, in any way within the jurisdiction of the United States, or occupied by the military or naval forces thereof. The words " the beginning of the war," as used herein, shall be deemed to mean midnight ending the day on which Congress has declared or shall declare war or the existence of a state of war. The words " end of the war," as used herein, shall be deemed to mean the date of proclamation of exchange of ratifications of the treaty of peace, unless the President shall, by proclamation, declare a prior date, in which case the date so proclaimed shall be deemed to be the " end of the war " within the meaning of this act. The words " bank or banks," as used herein, shall be deemed to mean and include national banks. State banks, trust companies, or other banks or bank- ing associations doing bu.slness under the laws of the United States, or of any State of the United States. The words " to trade," as used herein, shall be deemed to mean — (a) Pay, satisfy, compromise, or give security for the payment or satisfac- tion of any debt or obligation. (b) Draw, accept, pay, present for acceptance or payment, or indorse any negotiable instrument or chose in action. (c)' Enter into, carry on, complete, or perform any contract, agrt-ement, or obligation. (d) Buy or sell, loan or extend credit, trade in, deal with, exchange, trans- mit, transfer, assign, or otherwise dispose of, or receive any form of property. (e) To have any form of business or commercial communication or inter- course with. Sec. 3. That it shall be unlawful- la) For any person in the United States, except with the license of the President, granted to such person, or to the enemy, or ally of enemy, as provided in this act, to trade, or attempt to trade, either directly or indirectly, REPORT OF THE WAR TRADE BOARD. 359 with, to, or from, or for, or on account of, or on behalf of, or for the benefit of, any other person, with l^nowledge or reasonable cause to believe that such other person is an enemy or ally of enemy, or is conducting or taking part in such trade, directly or indirectly, for, or on account of, or on behalf of, or for the benefit of, an enemy or ally of enemy. (b) For any person, except with the license of the President, to transport, or attempt to transport, into or from the United States, or ft>v any owner, master, or other person in charge of a vessel of American registry to transport or attempt to transport from any place to any other place, any subject or citizen of an enemy or ally of enemy nation, with knowledge or reasonable cause to believe that the person transported or attempted to be transported is such subject or citizen. (c) For any person (other than a person in the service of the United States Government, or of the government of any nation, except that of an enemy or ally of enemy nation, and other than such persons or class of per- sons as may be exempted hereunder by the President or by such person as he may direct), to send, or take out of, or bring into, or attempt to send, or take out of, or bring Into the United States, any letter or other writing or tangible form of communication, except in the regular course of the mail; and it shall be unlawful for any person to send, take, or transmit, or attempt to send, take, or transmit out of the United States, any letter or other writing, book, map, plan, or other paper, picture, or any telegram, cablegram, or wire- less message, or other form of communication intended for or to be delivered, directly or indirectly, to an enemy or ally of enemy: Provided, liowcver. That any person may send, take, or transmit out of the United States anything herein forbidden if he shall first submit the same to the President, or to such officer as the President may direct, and shall obtain the license or consent of the President, under such rules and regulations, and with such exemptions, as shall be prescribed by the President. (d) Whenever, during the present war, the President shall deem that the public safety demands it, he may cause to be censored under such rules and regulations as he may from time to time establish, communications by mail, cable, radio, or other means of transmission passing between the United States and any foreign country he may from time to time specify, or which may be carried by any vessel or other means of transportation touching at any port, place, or territory of the United States and bound to or from any foreign country. Any person who willfully evades or attempts to evade the submission of any such communication to such censorship or willfully uses or attempts to use any code or other device for the purpose of concealing from such censor- ship the intended meaning of such communication shall be punished as pro- vided in section sixteen of this act. Sec 4. (a) Every enemy or ally of enemy insurance or rein.surance company, and every enemy or ally of enemy, doing business within the United States through an agency or branch office, or otherwise, may, within thirty days after the passage of this act, apply to the President for a license to continue to do business; and within thirty days after such application, the President may enter an order either granting or refusing to grant such license. The license, if granted, may be temporary or otherwise, and for such period of time, and may contain such provisions and conditions regulating the business, agencies, man- agers and trustees and the control and disposition of the funds of the company, or of such enemy or ally of enemy, as the President shall deem necessary for the safety of the United States ; and any license granted hereunder may be revoked or regranted or renewed in such manner and at such times as the President shall determine: I'rorided, Jioiccrrr, That reasonable notice of his intent to refuse to grant a license or to revoke a license granted to any rein- surance company shall be given by him to all insurance companies incorpo- rated within the United States and known to the President to be doing busi- ness with such reinsurance company : Provided further, That no insurance company, organized within the United States, shall be obligated to continue any existing contract, entered into prior to the beginning of the war, with any enemy or ally of enemy insurance or reinsurance company, but any such com- pany may abrogate and cancel any such contract by serving thirty days' notice in writing upon the President of its election to abrogate such contract. For a period of thirty days after the passage of this act, and further pending the entry of such order by the President, after application made by any enem>' or ally of enemy insurance or reinsurance company, within such thirty days as 360 KEPOKT OF THE WAR TEADE BOARD. above provided, the provisions of the President's proclamation of April sixth, nineteen hundred and seventeen, relative to agencies in the United States ot certain insurance companies, as modified by the provisions of the President s proclamation of July thirteenth, nineteen hundred and seventeen, relative to marine and war-risk insurance, shall remain in full force and effect so tar as it applies to such German insurance companies, and the conditions of said procla- mation of April sixth, nineteen hundred and seventeen, as modified by said proclamation of July thirteenth, nineteen hundred and seventeen, shall also during said period of thirty days after the passage of this act, and pending the ordet of the President as herein provided, apply to any enemy or ally of enemy insurance or reinsurance company, anything in this act to the contrary not- withstanding. It shall be unlawful for any enemy or ally of enemy insurance or reinsurance companv, to whom license is granted, to transmit out of the United States any funds belonging to or held for the benefit of such company or to use any such "funds as the basis for the establishment directly or indirectly of any credit within or outside of the United States to, or for the benefit of, or on behalf of, or on account of, an enemy or ally of enemy. For a period of thirty days after the passage of this act, and further pending the entry of such order by the President, after application made within such thirty days by any enemy or ally of eneiny, other than an insurance or rein- surance company as above provided, it shall be lawful for such enemy or ally of enemy to continue to do business in this country and for any person to trade with, to, from, for, on account of, on behalf of or for the benefit of such enemy or ally of enemy, anything in this act to the contrary notwithstanding: Prorided, hoicever, That the provisions of sections three and sixteen hereof shall apply to any act or attempted act of transmission or transfer of money or other property out of the United States and to the use or attempted use of such money or property as the basis for the establishment of any credit within or outside of the United States to, or for the benefit of, or on behalf of, or on account of, an enemy or ally of enemy. If no license is applied for within thirty days after the passage of this act, or if a license shall be refused to any enemy or ally of enemy, whether insur- ance or reinsurance company or other person, making application, or if any license granted shall be revoked by the President, the provisions of sections three and sixteen hereof shall forthwith apply to all trade or to any attempt to trade with, to, from, for, by, on account of, or on behalf of, or for the benefit of such company or other person: Prorided, hoicerer. That after such refusal or re\iication, anything in this act to the contrary notwithstanding, it shall be lawful for a policyholder or for an insurance company, not an enemy or ally of enemy, holding insurance or having effected reinsurance in or vsdth such enemy or ally of enemy insurance or reinsurance company, to receive payment of, and for such enemy or ally of enemy insurance or reinsurance company to pay any premium, return premium, claim, money, security, or other property due or which may become due on or in respect to such insurance or reinsur- ance in force at the date of such refusal or revocation of license ; and nothing in this act shall vitiate or nullify then existing policies or contracts of insur- ance or reinsurance, or the conditions thereof; and any such policyholder or insurance company, not an enemy or ally of enemy, having any claim to or upon money or other property of the enemy or ally of enemy insurance or rein- surance company in the custody or control of the alien property custodian, hereinafter pro\ ided for, or of the Treasurer of the United States', may make apjilication for the payment thereof and may institute suit as provided' in sec- tion nine hereof. (b) That, during the present war, no enemy, or ally of enemy, and no part- nership of which he is a member or was a member at the beginning of the war, shall for any purpose assume or use any name other than that by which such enemy or partnership was ordinarily known at the beginning of the war except under license from the President. Sec. 5. (a) That the President, if he shall find it compatible with the safety of the I nited States and with the successful prosecution of the war may by proclamation, suspend the provisions of this act so far as they apply to an ally of enemy, and he may revoke or renew such suspension from" time to time- and the President may grant licenses, special or general, temporary or other- wise, and for such period of time and containing such provisions and conditions as he shall prescribe to any person or class of persons to do business as pro- vided in subsection (a) of section four hereof, and to perform any act made EEPORT OP THE WAR TRADE BOARD. 361 unlawful without such license In section three hereof, and to file and jii-osecute applications under subsection (b) of section ten hereof; and he may revoki* or renew such licenses from time to time, if he shall be of opinion that such grant or revocation or renewal shall be compatible with the safety of the United States and with the successful prosecution of the war; and he may make such rules and regulations, not inconsistent with law, as may be necessary and proper to carry out the provisions of this act ; and the President may exer- cise any power or authority conferred by this act through such oflicer or officers as he shall direct. If the President shall have reasonable cause to believe that any act is about to be performed in violation of section three hereof he shall have authority to order the postponement of the performance of such act for a period not exceed- ing ninety days, pending investigation of the facts by him. Sec. 11. AYhenever during the present war the President shall find that the public safety so requires and shall make proclamation thereof it shall be un- lawful to import into the United States from any country named in such proc- lamation any article or articles mentioned in such proclamation except at such time or times, and under such regulations or orders, and subject to such limita- tions and exceptions as the President shall prescribe, until otherwise ordered by the President or by Congress : Provided, hoioevcr. That no preference shall be given to the ports of one State over those of another. Section III. Executive Order. By virtue of authority vested in me by Title VII of the act approved .Tune 15, 1917, entitled, "An act to punish acts of interference with the foreign rela- tions, the neutrality, and the foreign commerce of the United States, to punish espionage and better to enforce the criminal laws of the United States, and for other purposes," I hereby vest in the Secretary of Commerce the executive administration of all instructions issued by the President under said Title VII and of the proclamations thereunder, and the said Secretary is hereby author- ized and directed to take such measures as may.be necessary to administer and execute the same and to grant or refuse export licenses thereunder, in accordance with those instructions. I hereby establish an Exports Council, to be composed of the Secretary of State, the Secretary of Agriculture, the Secretary of Commerce, and the Food Administrator, and I hereby authorize and direct the said Exports Council, thus constituted, to formulate, for the consideration and approval of the President, policies and make the recommendations necessary to carry out the purposes of this act. WooDROW Wilson. The White House, 23 June, 1917. [No. 2645.] Section IV. [CERTAIN EXPORTS IN TIME OF WAR UNLAWFUL.] By THE President of the United States of America, a Proclamation. Whereas Congress has enacted, and the President has on the fifteenth day of June, 1917, approved a law which contains the following provisions : " Whenever during the present war the President shall find that the public safety shall so require, and shall make proclamation thereof, it shall be unlaw- ful to export from or ship from or take out of the United States to any country named in such proclamation any article or articles mentioned in such proclama- tion, except at such time or times, and under such regulations and orders, and subject to such limitations and exceptions as the President shall prescrllje, untd otherwise ordered by the President or by Congress: Provided, however, That no preference shall be given to the ports of one State over those of another. 362 EEPOET OF THE WAR TRADE BOARD. "Any person who shall export, ship, or take out, or deliver or attempt to flellver for export, shipment, or taking out, any article in violation of this title, or of any regulation or order made hereunder, shall be fined not more than $10,000, or, if a natural person. Imprisoned for not more than two years, or both ; and any article so delivered or exported, shipped, or taken out, or so attempted to be delivered or exported, shipped, or taken out, shall be seized and forfeited to the United States; and any officer, director, or agent of a cor- poration who participates in any such violation shall be liable to like fine or imprisonment or both. " Whenever there is reasonable cause to believe that any vessel, domestic or foreign, is about to carry out of the United States any article or articles in violation of the provisions of this title, the collector of customs for the district In which such vessel is located is hereby authorized and empowered, subject to review by the Secretary of Commerce, to refuse clearance to any such vessel, domestic or foreign, for which clearance is required by law, and by formal notice served upon the owners, master, or person or persons in command or charge of any domestic vessel for which clearance is not required by law, to forbid the departure of such vessel from the port, and it shall thereupon be unlawful for such vessel to depart. AVhoever, in violation of any of the pro- visions of this section shall take, or attempt to take, or authorize the taking of any such vessel out of port or from the jurisdiction of the United States, shall be fined not more than $10,000 or imprisoned for not more than two years, or both ; and, in addition, such vessel, her tackle, apparel, furniture, equipment, and her forbidden cargo shall be forfeited to the United States." And whereas, the public safety requires that succor shall be prevented from reaching the enemy ; Now, therefore I, Woodrow Wilson, President of the United States of Amer- ica, do hereby proclaim to all whom it may concern that except at such time or times and under such regulations and orders and subject to such limitations an'd exceptions as the President shall prescribe, until otherwise ordered by the President or by Congress, the following articles, namely : Coal, coke, fuel oils, kerosene and gasoline, including bunkers ; food grains, flour and meal there- from, fodder and feeds, meat and fats, pig iron, steel billets, ship plates and structural shapes, scrap iron and scrap steel ; ferromanganese ; fertilizers ; arms, ammunition and explosives, shall not, on and after the fifteenth day of July, 1917, be carried out of or exported from the United States or its terri- torial possessions to Abyssinia, Afghanistan, Albania, Argentina, Austria-Hun- gary, Belgium, her colonies, possessions or protectorates, Bolivia, Brazil, Bul- garia, China, Chile, Colombia, Costa Rica, Cuba, Denmark, her colonies, posses- sions or protectorates, Dominican Republic, Ecuador, Egypt, France, her colo- nies, possessions or protectorates, Germany, her colonies, possessions or protec- torates. Great Britain, her colonies, possessions or protectorates, Greece, Guate- mala, Haiti, Houduias, Italy, her colonies, possessions or protectorates, Japan, Liberia, Liechtenstein, Luxemburg, Mexico, Monaco, Montenegro, Morocco, Ne- pal, Nicaragua, the Netherlands, her colonies, possessions or protectorates, Norway, Oman, Panama, Paraguay, Persia, Peru, Portugal, her colonies, posses- sions or protectorates, Roumania, Russia, Salvador, San Marino, Serbia, Slam, Spain, her colonies, possessions or protectorates, Sweden, Switzerland, Uru- guay, Venezuela, or Turkey. The orders and regulations from time to time prescribed will be administered by and under the authority of the Secretary of Commerce, from whom licenses in conformity with the said orders and regulations \^'ill issue. In witness whereof I have hereunto set my hand and caused the seal of the United States to be affixed. Done at the city of Washington this ninth day of July, in the year of our Lord one thousand nine hundred and seventeen and of the independence of the ' United States of America the one hundred and forty-second. [seal.] Woodrow Wilson. Jiy the President : Fkank L. Polk, Acting Secretary of State. [No. 13S5. 1 KKi-UKT OF THE WAR TRADE BOARD. 363 Section V. EXECUTIA'E OkDEB. By virtue of autliority vested in me by Title VII of the act approved June la, 1917, entitled " An act to punish acts of interference with the foreign relations, the neutrality, and the foreign commerce of the United States, to punish espio- nage and better enforce the criminal laws of the United States, and for other purposes " : I hereby establish an Exports Administrative Board to be composed of a rep- resentative respectively of the Secretary of State, the Secretary of Agriculture, the Secretary of Commerce, the Food Administrator, and the United States Shipping Board, and I hereby vest in the said Administrative Board the execu- tive administration of all instructions issued by the President under said Title \'II and of the proclamations thereunder, and the said Administrative Board is hereby authorized and directed to take such measures as may Ije necessary to administer and execute the same and to grant or refuse export licenses there- under, in accordance with these instructions. I hereby establish an Exports Council, to be composed of the Secretary of State, the Secretary of Agriculture, the Secretary of Commerce, the Pood Ad- ministrator, and the Chairman of the Shipping Board, and I hereby authorize and direct the said Exports Council, thus constituted, to act in an advisory ca- pacity upon such matters under this act as may be referred to them by the President or the Adnainistrative Board. This order shall supersede the Executive order of June 22, 1917, and become effective August 27, 1917. WooDKOw Wilson. The AVhite House, Avgvst 21, 1917. Section VI. [certain exports in time of war unlawful.] By the President of the United States of America, a Proclamation. Whereas Congress has enacted, and the President has on the fifteenth day of June, 1917, approved a law which contains the following provisions : " Whenever during the present war the President shall find that the public safety shall so require, and shall make proclamation thereof, it shall be un- lawful to export from, or ship from, or take out of the United States to any country named in such proclamation any article or articles mentioned in such proclamation, except at such time or times, and under such regulations and orders, and subject to such limitations and exceptions as the President shall prescribe, until otherwise ordered by the President or by Congress: Provided, however, That no preference shall be given to the ports of one State over those of another. , ,. "Any person who shall export, ship, or take out, or deliver, or attempt to deliver for export, shipment, or taking out, any article in violation of thi.s title, or of any regulation or order made hereunder, shnll he fined not more than $10,000. or, if a natural person, imprisoned for ncir mv.i'i than two years, or both ; and any article so delivered or exported, shipped oi- taken out, or so attempted to be delivered or exported, shipped, or taken out, shall be seized and forfeited to the United States; and any ofiicer, director, or agent of a coi- poration who participates in any such violation shall be hable to hke fine oi imprisonment, or both. ,, ^ , -,„„,„„,.;o " Whenever there is reasonable cause to beheve that any vessel, domestic or foreign, is about to carry out of the United States any article oi' ;"ticles m violation of the provisions of this title, the collector of customs for the dstiict in which such vessel is located is hereby authorized and empowered subject to review by the Secretary of Commerce, to refuse clearance to a^y^uch vessel, domestic or foreign, for ^^■hieh clearance is required by law, .and by toinial notice served upon the owners, master, or person or persons '^ command oi charge of any domestic vessel for which clearance is "O* '•equired by law, to forbid the departure of such vessel from the port, and it shall thereupon be 364 REPORT OF THE WAR TRADE BOARD. unlawful for such vessel to depart. AMioever, In -violation of any of the pro- visions of this section, shall take, or attempt to take, or authorize the taking of any such vessel out of port or from the jurisdiction of the United States, shall be fined not more than $10,000 or imprisoned for not more than two years, or both; and, in addition, such vessel, her tackle, apparel, furniture, equip- ment, and her forbidden cargo shall be forfeited to the United States;" Now, therefore, I, Woodrow Wilson, President of the United States of America, do hereby proclaim to all whom it may concern that the public safety requires that, except at such time or times, and under such regulations and orders, and subject to such limitations and exceptions as the President shall prescribe, until otherwise ordered by the President or by Congress, the fol- lowing articles, namely: All kinds of arms, guns, aunimnition and explosives, machines for their manufacture or repair, component parts thereof, materials or ingredients used in their manufacture, and all articles necessary or con- venient for their use ; all contrivances for, or means of transportation on land or in tlie water or air, machines used in tlieir manufacture or repaii-, com- ponent parts thereof, materials or ingredients used in their manufacture, and all instruments, articles, and animals necessary or convenient for their use; all means of communication, tools, implements, instruments, equipment, maps, pic- tures, papers and other articles, machines and documents necessary or con- venient for carrying on hostile operations ; coin, bullion, currency, evidences of debt, and metal, materials, dies, plates, machinery, and other articles necessary or convenient for their manufacture; all kinds of fuel, food, food-stuffs, feed, forage and clothing, and all articles and materials used in their manufacture ; all chemicals, drugs, dyestuffs, and tanning materials ; cotton, wool, silk, flax, hemp, jute, sisal, and other fibres and manufactures thereof ; all earths, clay, glass, sand, and their products; hides, skins, and manufactures thereof; non- edible animal and vegetable products ; machinery, tools, and apparatus ; medi- cal, surgical, laboratory, and sanitary supplies and equipment ; all metals, minerals, mineral oils, ores, and all derivatives and manufactures thereof; paper pulp, books, and printed matter ; rubber, gums, rosins, tars and waxes, their products, derivatives and substitutes, and all articles containing them; wood and wood manufactures ; coffee, cocoa, tea, and spices ; \'\ines, spirits, mineral waters, and beverag-;'s ; shall not, on and after the 30th day of August in the year one thousand nine hundred and seventeen, be exported from or shipped from, or taken out of the United States or its territorial possessions to Albania, Austria-Hungary, tliat portion of Uelgium occupied by the military forces of Germany, Bulgaria, Denmark, her colonies, possessions or protector- ates, Germany, her colonies, possessions or protectorates, Greece, Liechtenstein, Luxembourg, the Kingdom of the Ketherlands, Norway, Spain, her colonies, possessions or protectorates, Sweden, Switzerland or Turkey (excluding any portion of the foregoing occupied by the military forces of the United States or the nations associated with the United States in the war"), or any territory occupied by the military forces of Germany or her allies; and I do hereby further proclaim to all whom it may concern that the public safety requires that, except at such time or times, and under such regulations and orders, and subject to such limitations and exceptions as the President shaU prescribe, until otherwise ordered by the President or by Congress, the following articles, namely : Coal ; col^e ; fuel oils, lubricating oils, hand-lantern oil, naptha, benzine, red oil, kerosene, and gasoline ; all bunkers ; food grains, flour and meal therefrom, corn flour, barley, rice flour, rice, oat meal, and rolled oats ; fodder and feeds, oil-cake, oil-meal cake, malt, and peanuts ; all meats and fats, poultry, cottonseed oil, corn oil, copra, desiccated cocoanuts, butter, fresh, dried, and canned fish, edible or inedililc grease of animal or vegetable origin. Unseed oil, lard, tinned milk, peanut oil and butter, rap(>seed oil, tallow, tallow candles, and stearic acid; sugar, glucose, syrup, and molasses; pig iron, ferro-silicon and spiegeleisen ; steel ingots, billets, blooms, slabs, and sheet bars ; iron and steel plates, including ship, boiler, tank and all other iron and steel plates one-eighth of an inch thick and heavier, and wider than six inches; iron and steel structural shapes, including beams, channels, angles, tees, and zees of all sizes; fabricated structural iron and steel, including beams, chan- nels, angles, tees, zees and plates, fabricated and shipped knocked down ; scrap iron and scrap steel ; ferro-manganese ; tool steel, high-speed steel and alloy steels, and machine tools; steel-hardening materials; fertilizers, including cattle and sheep manure, nitrate of soda, poudrette, potato manure, potassium salts, land plaster, potash, cyanamide, phosphoric acid, phosphate rock, super- phosphate, chlorate of potash, bone meal, bone flour, ground bone, dried blood. REPORT OF THE WAR TRADE BOARD. 365 ammonia nnd ammonia salts, acid pliospliates, guano, liumus, hardwood aslK^s, soot, anhydrous ammonia; aeronautical machines and instruments, their parts and accessories thereof; arms and ammunition; all explosives, nitrate of potash, rosin, saltpetre, turpentine, ether, alcohol, sulphur, sulphuric acid and its salts, acetone, nitric acid and its salts, benzol and its derivatives, phenol (carbolic acid) and its derivatives, toluol and its derivatives, mercury and its salts, glycerine, potash and its salts, all cyanides and films; carrier and other pigeons ; anti-aircraft instruments, apparatus, and accessories ; all radio and wireless apparatus and its accessories; optical glass, optical instruments, and reflectors ; cotton and cotton linters ; wool, wool rags, wool and khaki clippings, and wool products; flax, sisal, jute, hemp, and all manufactures thereof; hides. Skins, leather, leather belting, sole and upper leather, leather boots and shoes, harness and saddles, and leather clothing ; soap and soap powders ; all engines and motors operated by steam, gas, electricity or other motive power and their accessories; metal and wood-working machinery; oil well casing, oil well drill- ing implements and machinery and the accessories thereof; steam boilers, turbines, condensers, pumps, and accessories thereof ; all electrical equipment ; crucibles ; emery, emery wheels, carborundum and all artificial abrasives ; copper, including copper ingots, bars, rods, plates, sheets, tubes, wire, and scrap thereof ; lead and white lead ; tin, tin plate, tin cans, and all articles contain- ing tin; nickel, aluminum, zinc, plumbago and platinum; news-paper, print- paper, wood pulp, and cellulose ; ash, spruce, walnut, mahogany, oak, and birch woods ; and industrial diamonds : shall not, on and after the 30th day of August in the year one thousand nine hundred and seventeen, be exported from, shipped from or taken out of the United States or its territorial posses- sions to Abyssinia, Afghanistan, Ai'gentiua, that portion of Belgium not occu- pied by the military forces of Germany or the colonies, possessions or pro- tectorates of Belgium, Bolivia, Brazil, China. Chile, Colombia, Costa Rica, Cuba, Dominican Republic, Ecuador, Egypt, France, her colonies, possessions or protectorates, Guatemala. Haiti, Honduras, Italy, her colonies, possessions or protectorates, Great Britain, her colonies, possessions or protectorates, Ja- pan, Liberia, Mexico, Monaco, Montenegro, Morocco. Nepal, Nicaragua, the colonies, possessions or protectorates of the Netherlands, Oman, Panama, Para- guay, Persia. Peru, Portugal, her colonies, posses.sions or protectorates, Rou- mania, Russia, Salvador. San Marino, Serbia, Siam, Uruguay, Venezuela (ex- cluding any portion of the foregoing occupied by the military forces of Ger- many or her allies), or any territory occupied by the military forces of the United States or by the nations associated with the United States in the war. The regulations, orders, limitations, and exceptions prescribed will be ad- ministered by and under the authority of the Exports Administrative Board, from whom licenses, in conformity with said regulations, orders, hmitations, and exceptions, will issue. In witness whereof, I hii\e hereunto set my hand and caused the seal of the United States of America to be affixed. Done at the city of Washington, this 27th day of August in the year of our Lord one thousand nine hundred and seventeen and of the independence of the United States of America the one hundred and forty-second. [seal] Woodkow Wilson. By the President : Robert Lansing, Scrretnrij of State. Section VII. Executive Oedek. VESTING POWER AND AUTHORITY IN DESIGN.^TED OFFICERS AND MAKING RULES AND REGULATIONS UNDER TRADING WITH THE ENEMY ACT AND TITLE VII OF THE ACT APPROVED JUNE 15, 1917. Bv Virtue of the authority vested in me by "An act to define, regulate^ and punish trading with the enemy and for other purposes," approved October b. 1917, and by Title VII of the act approved .Tune 15, 1917, entitled An act to punish acts of interference with the foreign relations, the neutrality and the foreign commerce of the United States, to punish espionage and better to 366 KEPOKT OF THE WAR TRADE BOARD. enforce the criminal laws of the United States and for other purposes" (here- inafter designated as the espionage act), I herehy make the following orders and rules and regulations : WM! TRADE BOARD. I. I herehy establish a AVar Trade Board to be composed of representatives respectively, of the Secretary of State, of the Secretary of the Treasury, of the Secretary of Agriculture, of the Secretary of Commerce, of the Food Adminis- trator, and of the TTnited States Shipping I'.oard. II. I hereby vest in said board the power and authority to isstu^ licenses under such terms and conditions as are not inconsistent with law, or to with- hold or refuse licenses, for the exportation of all articles, except coin, bullion or currency, the exportation or taking of which out of the United States may be restricted by proclamations heretolore or hereafter issued by me under said Title VII of the espionage act. III. I further hereby vest in said War Trade Board the power and authority to issue, upon such terms and conditions as are not inconsistent with law, or to withhold or refuse, licenses for the importation of all articles the importation of which may be restricted by any proclamation hereafter issued by me under section 11 of the trading with the enemy act. IV. I further hereby vest in said War Trade Board the powtT and authority not vested in otJier officers by subsequent provisions of this order, to issue, under such terms and conditions as are not inconsistent with law, or to withhold or refuse, licenses to trade either directly or indirectly with, to, or from, or for, or on aecount of, or on behalf of, or for the benefit of, any other person, with knowledge or reasonable cause to believe that such other person Is an enemy or ally of enemy, or is conducting or taking part in such trade directly or in- directly tor, or on account of, on behalf of, or for the benefit of, an enemy or ally of enemy. V. I f\n-ther herel)y vest in said W'-.w Trade I'.oard the power and authority, under such terms and conditions as are not inconsistent \\ith law, to issue to every enemy or ally of enemy, other than enemy oi' ally of enemy insurance or reinsurance companies, doing business within the United States through an agency or branch office, or otherwise, applying thereHn' within 30 days of October 6, 1917, licenses temporary or otherwise to continue to do business, or said board may withhold or refuse the same. VI. I further hereby vest in said War Trade Board the executive admin- istration of the provisions of section 4 (b) of the trading with the enemy act relative to granting licenses to enemies and enemy allies to assume or use other names than those by which they wei-e known at the b(>ginning of the war. And I hereby authorize said board to issue licenses iu)t inconsistent with the pro- visions of law or to witlihold or refus(> licenses to any enemy, or ally of enemy, or partnership of which an enemy or ally of enemy is a membi'r or was a member at the beginning of the war, to assume or use any name other than that by which such enemy or ally of enemy or i)artnership was ordinarily known at the beginning of the war. VII. I hereby revoke the Executive order of August 21, 1917, creating the Exiiiirts Administrative Board. All proclamations, I'ules, i-egulations, and in- structions made or given by me under Title VII of the espionage act and now being administei-ed by the Exports Administrative Board are herehy con- tinued, eonflrnu'd, and made applica))le to the War Trade Board, and all employees of the Exports Administrative I'.oard ai-e hereby transferred to and constituted emplo.\'(>es of the War Trade Bo.'ird in the same capa<-ities, and said War Trade I'.oard is hereby authorized to exercise without interruption the powei-s heretol'cire exercised by said I'^xports Administrative Board. VIII. The said W^'u■ Trade Board is herel)y authorized and eni])o\vered to take all such measures as may be necessary or expedient to adn\inister the powers hereby conl'erred. And I liei-eby vest in tlie AN'ar Trade board the powi^r conferred uiioii the I'residcnt by section 5 (;i) to make such rules and regulations, not inconsistent with law, as may be neccssar>- and proper for llic exercise of the iiowers conferred ujion said boai-d. \\ Alt TRADE COUNCIT.. IX. I hereby establish a War Trade 0, T91S, to be discontinued June 1, 1!)T8 Apr. 24, ]91v (For further import rulin.u..'^, .see supplementary list, Dye- woods and ve.uetable dye extracts, etc.) Meat and meat products, except fresh meats : Importation prohibited except by rail or lake from Canada or Mexico Apr. 2, llibs- Ruiin.ff of Apr. 2, 1918, discontinueil Apr. 24, l!)ls (For further import rulings, see item 117, list 2, ]\h\it products and preserved meats.) Orchids: Importation prohibited Feb. 16. 1!I1S (For further import rulinjis. see item 61, list 1, I'lants, trees, shrubs, vines, etc.) Paper stock, crude, except wood pulp : Importation prohibited except by rail or lake from Canada or Mexico Apr. 2, 1918 Ruling of Apr. 2, 1918, discontinued Apr. 24, ]9]8 (For furtlier in)port rulings, see item 142, list 2, I'aper stock, crude, etc.) Pyrites: Importation prohibited from Norway Feb. 18,1918 (For further Import rulings, see item" 64, list 1, Pyrites.) Quebracho wood : Importation prohibited except by rail or lake from Canada or Mexico Apr. 2, 1918 Ruling of Apr. 2, 1918, discontinued Apr. 24,1918 Licenses withheld until further notice Apr. 24, 1918 The foregoing ruling revoked May 17, 1918 (For further import rulings, see item 146, list 2, Que- bracho wood.) Raisin,?: Importation prohibited from Spain Mar. 3, 191S (For further import rulings, see item 34, list 1, All fruits except pineapples and bananas. ) Shells and manufactures of: Importation prohibited except by rail or lake from Canada and Mexico Apr. 2, 1918" Ruling of Apr. 2, 1918, discontinued Apr. 24, 1918 Starch : Importation prohibited except by rail or lake from Canada or Mexico Apr. 2, 191S Ruling of Apr. 2, 1918, discontinued Apr. 24, 1918 (For further import rulings, see Item 120, list 2, Starch.) Tea waste : Importation prohibited except by rail or lake from Canada or ■ Mexico Apr. 2, 1918 Riding of Apr. 2, 1918, discontinued Apr. 24,1918. (For further import rulings, see item 144, list 2, Tea waste, sittings, or sweepings.) Tobacco leaf, except from Cuba : Importation prohibited except by rail or lake from Canada or Mexico Apr. 2, 1918' Ruling of Apr. 2, 1918, discontinued Apr. 24, 1918 (For further import ruling.s, see item 105, list 2, Tobacco leaf.) Wolfram : Importation prohibited from Portugal Jan. 28, 1918 Restrictions removed Jan. 30, 1919 Wool: Importation from Iceland prohibited Feb. 12, 1918 Restricted articles permitted to come from Iceland on S. S. Gulfoss 1 Feb. 2.5,1918 Importation of all commodities from Iceland prohibited Apr. 25,1918 Importation of wool permitted from Iceland on S. S.^Lagar- foss on present return voyage. Ruling of Feb. 2o, 1918, rescinded June 13, 1918: 'SI 8 REPORT OF THE WAR TRADE BOARD. Section II. List No. 1 of Restricted Impokts, Effective Apbil 15, 1918. Application for license to import articles appearing on the list will not be ■granted except under the following circumstances : (1) When the articles mentioned are actually shipped from abroad prior to April 15, 1918 ; (2)'\Mien coming by rail from Mexico and Canada when the goods in ques- tion originated in those countries or in others from which such goods are being licensed for import ; (3) When coming as a return cargo from European points^ and then only; (a) When coming from a convenient port, (&) When loaded without delay, and (c) When the importation from Europe is not specifically pro- hibited in said list. 1. Agricultural implements: Restrictions removed Dec. 24, 1918 2. Animals, live, except for breeding purposes : Monkeys : Importation permitted when certified to be used by hospitals or other scientific institutions Apr. 22, 1918 Live goats from Guadaloupe Islands : Importation of 20,000 permitted to San Diego, Calif Aug. 10, 1918 All live animals : Restrictions removed Dec. 19, 1918 3. Art works : Restrictions removed Dec. 24. 1918 4. Asbestos : Restrictions removed Dec. 13, 1918 -5. Beads and -ornaments : Restrictions removed Dec. 24, 1918 ■6. Blacking, and all preparations for cleaning and polLshing shoes : Restrictions removed Dec. 19, 1918 7. Bone and horn, manufactures of: Restrictions removed Dec. 24,1918 8. All breadstufEs except wheat and wheat flour, including im- ports from Europe : Bran and shorts from Lower California : Tarr & McComb, Los Angeles, permitted to import bran and shorts on motorship Gnjme May 17,1918 Restrictions removed Feb. 13, 1919 Corn (maize) :^ From River Plate district (Argentina and Uruguay) : Importation permitted under certain conditions Sept. 28, 1919 Restrictions on corn removed Jan. 10,1919 Rice (raw) : Originally included in item S, list No. 1, All breadstufEs, but removed Apr. 12, 1918, before list No. 1 became effective. See supplementary list. Tapioca and sago : Tapioca ilour: Pennsylvania Trojan Powder Co." per- mitted to import 2,300 tons May 16,1918 Restrictions removed Dec. 20,1918 Vermicelli : Importation permitted from China Dec. 23, 1918 Restrictions removed Feb. 13, 1919 All breadstuffs except rice, wheat, and wheat flour: All re- maining restrictions removed Feb. 13, 1919 9. Broom corn : Restrictions removed Dec. 19, 1918 10. Candlepitch, palm, and other vegetable stearin: Restrictions removed May 25, 1918 11. Cars, carriages, and other vehicles : Restrictions removed Dec. 19, 1918 12. All acids : Restrictions removed Dec. 24. 1918 13. Muriate of anunonia : Restrictions removed Dec! 24,' 1918 14. All coal-tar distillates except synthetic indigo : Dyes from Sweden : Importation prohibited Apr. 25, 1918 Creosote oil from Japan : Importation of 2,000,000 gallons permitted during remainder of calendar year Aug 10, 1918 All articles under item 14: Restrictions removed Jan. 6,1919 15. Fusel oil or amylic alcohol: Restrictions removed Dec. 24,1918 ' Amendeil June 2S, 191S, to include Mediterranean Africa = For import rulings prior to Apr. 1.5, lOlS, see Corn, un(3er Section I. KEPORT OF THE WAE TRADE BOARD. 379 U6. Citrate of lime: Lime juice, citrate of lime, etc., from West Indies : Impor- tation of 500 tons in all of lime juice, citrate of lime, and other fruit concentrates made from limes permitted from West Indies during calendar year 191S June 5, ifiis Citrate of lime: Restrictions removed Dec 24 1918 17. All salts of soda except nitrate of soda and cyanide of soda : Restrictions removed Dpp 04 1918 18. Sumac, ground or un.sround : Restrictions removed Dec 23, 1918 19. Chicory root, raw or roasted: Restrictions removeil__ Dec ^^4' 1918 20. Clocks and watches and parts thereof: ' ~ ' Watch crystals removed from item 20 Apr 12 1918 All articles under item 20: Restrictions removed Dec ^^4 1918 21. Cocoa and chocolate, prepared or manufactured : Restrictions removed £)ec "^4 1918 22. Cotton, manufactures of: Laces and lace articles from China: Importation per- mitted Dec. 9, 1918 All articles under item 22 : Restrictions removed Jan 1 1919 23. Cryolite, except not to exceed 2,000 long tons for the year 1918: Pennsylvania Salt JIanufacturing Co. permitted to import the total amount authorized under list 1 ; further licenses for remainder of calendar year prohibited Apr. 24, 1918 Restrictions removed Dec. 24.' 1918 24. Dials: Restrictions removed Dec. 24^1918 25. Dice, draughts, chessmen, billiard balls, poker chips: Restric- tions removed Dec. 24, 1918 26. Eggs of poultry : Restrictions removed Jan. 6, 1919 27. Electric lamps : Restrictions removed Dec. 24^ 1918 28. Explosives, except fulminates and gunpowder: Restrictions removed Jnn. 6, 1919 29. Feathers, natural and artificial : Restrictions removed Feb. 2.^, 1919 30. Manure salts: Restrictions removed Dec. 24,1918 31. Manfactures of vegetable fibers and textile grasses, except cotton (item 22) and jute: Flax duck canvas from Orient : Importation of SO tons permitted Aug. 15, 1918 From China, .Japan, and British East Indies: Importation of articles under item 31 permitted Dec. 19,1918 Restrictions removed Jan. 11,1919 32. Fish hooks, rods and reels, artificial bait : Restrictions re- moved Dec. 24, 1918 33. Fluorspar : Restrictions removed Dec. 24, 1918 34. All fruits except pineapples and bananas : ^ Fresh fruits from Cuba : A general license permits impor- tation by rail Apr. 15, 1918 Fruit from Cuba : Importation permitted from east coast of Cuba on following vessels provided they carry sugar in the amounts indicated: S. S. Morro Castle, 12,000 bags; S. S. Jfe.Wco, 24,000 bags; S. S, OUnda, 17,000 bags May 1, 1918 Fruit from Cuba : Importation of fresh fruits permitted on S. S. Minmi. and S. S. Mascotie May 1,1918 Lime juice, etc., from West Indies : Importation for calen- dar year restricted to 500 tons in all of lime juice, cit- rate of lime (item 16), and other fruit concentrates made from limes June 5, 1918 Commodities from Cuba : Importation permitted of any commodity originating in Cuba when shipment is made bv tlie car ferries Joseph JR. Parroft and Henry M. Flagler __ ■ July 25, 1918 Citrus fruits and products thereof from West Indies and Central America : Importation permitted Aug. 15, 1918 » For import rulings prior to Apr. 15, 1918, see Raisins, under Section I. 380 KEPOET OF THE WAR TRADE BOARD. Fruits and products of fruits, frcsli, canned, or fireserved, from Bahamas to east Florida ports: Importatious per- mitted on scliooners (jr motor boats of ri(X» tons register owned and operated by residents of Bahamas Sept. 11, 1918 Fruits from Guatemala : Importation permitted Dec. 13, 1918 Limes, lime juice, etc. : Limes, lime juice, lime concen- trates, and other lime products (except citrate of lime, item 16) removed from item 34 of restricted list Dec. 20,1918 Prepared fruits from (Jhina : Importation permitted Dec. 23, 1918 Olives from China : Importation permitted Dec. 23, 1918 All fruits except pineapples and bananas : Restrictions re- moved Dec. 24, 1918 35. All nuts except coconuts and pi-oducts thereof : Cahuni nuts from Mexico or Central America : Ocean shipment permitted Apr. 1.5, 1918 Brazil nuts : Importation of 2,(;)00 tons permitted to four firms May 13,1918 Palm oil kernels from Belgian Congo: Importation per- mitted on sailing vessel Rostclltni Sept. 10, 1918 Palm kernels from Liberia : Importation permitted on sailing ves.-iel Rizrard Sept. 10,1918 I'alm kernels from Belgian Congo : Importation permitted on Bonneviene ^ Nov. 1, 1918 Palm kernels from Belgian Congo : Importation of 2,000 tons copal and palm kernels per- mitted on S. S. Bassam or S. S. Atlantan before .Jam 1, 1919 Nov. 28, 1918 Revoked ; importation of 2,000 tons copal and palm kernels permitted on S. S. Neiiibe Dec. 9,1918 Brazil nuts and shelled walnuts : Removed from item 3.5 of restricted list Dec. 16, 1918 AVater chestnuts and almonds: Importation permitted from China Dec. 23, 1918 Walnuts and filberts : Removed from item 3.5 of restricted list Dec. 27, 1918 All nuts except coconuts and products thereof : All re- maining re.strictions except those on peanuts removed Jan. 13, 1919 Peanuts : Restrictions removed Mar. 11, 1919 36. (ielatine and manufactures thereof. Including all from Europe : Restrictions removed Dec. 24, 1918 37. Gold and silver manufactures, including jewelry: Restrictions removed Dec. 24, 1918 38. Sulphur oil or olive foots : Restrictions removed Dec. 24, 1918 39. Grease: Restrictions removed . Dec. 24.1918 40. Hay : Restrictions removed Dec. 24, 1918 41. Honey : From Jlexico and West Indies : Importation permitted by ocean transportation If shipments reach the United States before .Tan. 1, 1919 Nov. 15,1918 Restrictions on honey removed Dec. 16,1918 42. Hops: Restrictions removed Dec. 24,1918 43. Infusorial and diatomaceous earth and tripoli : Restrictions removed Dec. 24, 1918 44. Mantles for gas burners: Restrictions removed Dec. 24.1918 4."i. Matches, friction andlucifer. Restrictions removed Jan. 6, 1919 46. Fresh meats : Frozen wild ducks from Mexico : Removed from item 4(5 of restricted list Dec. 20,1918 liestrictions removed , .Jan. 6,1919 47. Meerschaum, crude and manufactured : Restrictions removed. Dec. 24. 1918 48. Miisical instruments and parts thereof: Re.strictions removed- Dec 24,1918 49. Nickel : Nickel matte from Australasia : Importation of 15 per cent D. W. capacity permitted as ballast in sailing vessels carrying wool Oct. 22, 1918 15 per cent changed to 25 per cent Dec. 19,1918 Restrictions removed Dec. 24,1918 KEPOKT OF THE WAR TKADE BOARD. 381 50. Oil cake : ^dmoM"'"'' Importation permitted under certuin con- Restrictions removedVJ7_V_~_V_~_ S®'"' ^^' '^^'^^^ 51. Oilclotli and linoleum for floors: '^^'- 19,1018 Importation proliibited after July 3 I9is Restrictions removed _^__^ ^"■_ j 52. All expressed vegetable oils (proliil,ite,rt"rom"Em-ope"onIvr"'' "' hibited ""'"' "'"'^^ "*' ^^^'■'"'' I'»l'*^'t'^tiou p'ro- Palm oil:liemoveainmru^r^;7resWcted"uiu;;);:ir" Ju^ if' Iglg „ T expressed vegetable ods: Kestriciions removed '" Dec 24 19 8 53. Lemon oil ; Restrictions removed _ i^Z- ot i ni q 51. Noumineral paints and varnislies : Restricticm7rem.A-ed Dec' ^4 loiS 50. Pencds and pencil lea.ls : Resrrictions removed^. """ Dec' ^4 191S 06. Penholders and pens : Restrictions removed fZ' Zl' iqis mov'^d"'^'' ™'^™'^"'^''' ^"'' *°''*'' preparations: RestrrctiJnsVe" " 58. Phonographs, gramophones, graph7pl^o'nesV;mtrpartrth~e7eof"' ^'^'^' ^'^' "^^"^^ Old dislis for phonograplis : Removed from item 58 '__ Dec 2S 1918 Phonographs, graphophones, gramophones, and part-< there- ' ' of: Restrictions removed T-,„,. .,1 iqiq 59. Photographic goods: ^ • -■*> 1^1** Ayers, Bridges & Co. permitted to import two cases mov- ing-picture films ^J.^^ -^^ j^gjg Importation of photographic goods permitted from Guate- mala J)gp J^g j^gjg Rfestrictions on photographic goods removed Dec 19 1918 60. Pipes and smolders' articles: Restrictions removed Dec' -'l' 1918 61. Plants, trees, shrubs and vines (interpreted to include all ' " ' nursery stock) : ' Lily bulbs from Bermuda : Importation permitted on S S CharyMis j^^l^, 12, 1918 Amended to include flower bulbs Aug. 7 1918 All articles under item 61 : Restrictions removed Dec. 19, 1918 62. Plates, electrotype, stereotype, and lithographic, engraved: Restrictions removed Dge 24 1918 63. Graphite or plumbago until July 1, 1918, thereafter not ex- ceeding 5,000 long tons for remainder of 1918. Importation restricted for remainder of calendar vear to shipments overland or by lake from Canada and over- land from Mexico July 3, 1913 Graphite of crucible grade: Overseas importation per- mitted under certain conditions Oct. 2,1918 Restrictions removed Jan. 16,1919 64. Pyrites (except not exceeding 125,000 long tons to Oct. 1 1918 : ' For remainder of calendar year 56,400 long tons, or remain- ing part of 125,000 tons above, may be obtained from Spain _■ Sept. 28. 1918 Restrictions removed Jan. 16, 1919 65. Rennets : Restrictions removed Dec. 24, 1918 66. Artificial silks and manufactures thereof: Restrictions re- moved Dec. 24, 1918 67. Soap: Restrictions removed Dec. 24,1918 68. Malt liquors. Including all from Europe : Restrictions removed- Dec. 24, 1918 69. Wines: Re.strictions removed Dec. 24,1918 70. Other beverages, including all from Europe : Mineral water from France, United Kingdom, and Italy: Importations permitted from France when made from convenient ports, loaded without delay May 24, 1918 Amended to include also United Kingdom and Italy July 30, 1918 All articles under item 70: Restrictions removed Dec. 24, 1918 ^ For import rulings prior to Apr. 15, 1918, see Orchids, under Section I. ' For Import rulings prior to Apr. 15, 1918, see Pyrites, under Section I. 382 REPORT OF THE WAR TRADE BOARD. 71. Candy and confectionery, including all from Europe : Restric- tions removed Dec. 24, 1918' 72. Tar and pitch of wood : Restrictions removed Dec. 24, igiP 73. Toys: Overseas importation of glass Christmas tree ornaments prohibited June 21, 191P Restrictions on toys removed Dec. 24,1918 74. Umbrellas, parasols, sunshades, and sticks for : Restrictions removed Dec. 24. 1918 75. Beans and lentils (prohibited from Europe only) : Dried beans or dried lentils : Ocean shipment prohibited except (a) when destined for Government use or Bel- gian relief; (6) when Intended for consumption within the United States Sept. 28, 1918 Beans and lentils : Importation permitted from Russia under certain conditions Dec. 13, 1918 All articles under item 75 : Restrictions removed Dec. 24, 1918 76. Dried peas (prohibited from Europe only) : Ocean shipment prohibited except (o) when destined for Government use or Belgian relief; (b) when in- tended for consumption within the United States Sept. 28, 1918 Restrictions removed ; Dec. 24, 1918 77. All vegetables, except beans and lentils, and peas, either in their natural state or prepared or preserved, including all from Europe : Fresh vegetables from Cuba : A general license permits importation by rail Apr. 15,1918 Fresh vegetables from Bermuda : A general license covers importation when shipped on S. S. Cliarybdis Apr. 15, 1918 Fresh vegetables from Bermuda : A general license covers importation when shipped on U. S. colliers Lakeport, Sioux, or Lake Worth Apr. 30, 1918 Fresh vegetables from Cuba : A general license covers im- portation when shipped on S. S. Miami or S. S. Mas- cotte May 1,1918 Mushrooms from Europe : Importations permitted from European countries as return cargo when loaded with- out delay at convenient ports June 6, 1918 Truffles from Europe : Importations permitted from Euro- pean countries as return cargo when loaded without delay at convenient ports July 16,1918 Sauces from Europe : Importation of chili sauce, caper in vinegar, ^A'orcestershire sauce, chutney sauce. Prince of Wales salad sauce, and Harvey sauce permitted as baclihaul from Europe and Mediterranean Africa July 24, 1918 Commodities from Cuba : Importation permitted of any commodity originating in Cuba when shipment is made by the car ferries Joseph R. Parrott and Henry M. Flagler _' j^jy 25, 1918 Vegetables from Cuba: A general license, to be in force until Dec. 31, 1918, permits importation by other than rail transportation ^^g^ g_ j^gj^g. Garlic from Italy : Importation permitted until .Tan. 1, 1919- Aug' IQ, 1918 Fresh tomatoes from Bahamas: Until Jan. 1, 1919, im- portations to New Yorli permitted as decli cargo upon Cuba-New York mail steamers gept 3, 1918 ^'egetables from Bahamas : Importation of vegetables and products thereof, fresh, canned, or preserved, permitted from Bahamas to east Florida ports on schooners or motor boats of 500 tons or less register owned and oper- ated by residents of the Bahamas Sept 11 191S Foodstuffs from Japan : For next 12 months importation ' ' of 13,138 tons permitted for consumption by Japanese citizens residing in the United States. (This ruling ap- pears also under item 106, Fish, fresh, cured or pre- served Sept. 26, 1918 REPORT OF THE WAR TRADE BOARD. 383- Vegetables from Mazatlan, Mexico: Ocean slupiueiit per- Vegetables and sauces from ai~in7rimportaTion~permrttecl ^^''^' '^'^' "^^^^ of thick soy, manufactured thin soy (sauce), prepared vegetables, bean curd, bean sauce, prepared soy beans salt cabbage, dried Illy root, dried vegetables dried mushrooms j j-^ •>•:> iqio All vegetables, either in their natural state or "prepared or preserved : Restrictions removed Dec oj iqiq- 78. Vinegar: Restrictions removed """111" "I Dec' 24 iqi s 79. Whalebone, unmanufactured: Restrictions removed Dec' ?4'iqi5 80. Wool, manufactures of: ^i, j-»i« Oriental rugs : Importations permitted if purchased prior to Apr. 15, 1918, and payment made prior to Nov. 27, 1918 ' -pgj, g 191R All articles under item 80: Restrictions removed Jan' Is'lQiq 81. Manufactures of hair of camel, goat, and alpaca : Restriction« ' ' removed _ _' jp^^ 24 loiR 82. Zinc : Restrictions removed j)g(,' 24' igig. Section III. List No. 2 or Restricted Imports, Effective May 14, 1918. 101. Lime : Importation prohibited except from Canada. Restrictions removed jan 1 I9ij> 102. Talc and soapstone: Importation prohibited except from Canada. Importation restricted to shipments overland or by lake from Canada ; importation permitted overland from Mexico ; importations permitted as return cargo from convenient European ijorts when loaded without delay, June 6, 1918 Restrictions removed Jan. 1, 1919 103. Shellfish (item does not include crab meat from Japan) : Im- , portation prohibited except from Canada and Newfound- land. Shrimps from Port of Mazatlan, Mexico: Importation permitted Dec. 23, 1918 Oysters from China: Importation permitted Dec. 23,1918 All articles uiider item 103 : Restrictions removed Jan. 1, 1919 104. Molybdenum: Importation prohibited except from Canada and Mexico. Restrictions removed Jan. 1,1910 105. Tobacco leaf : ^ Importation prohibited except from Cuba and West Indies. Tobacco from Greece : Importations permitted as return cargo from convenient European ports when loaded without delay. Must be certified to be of Grecian origin May IS, 1918 Tobacco from Island of Cyprus : Importations permitted as return cargo from convenient European or Mediter- ranean African port Sept. 5. 1918 Restrictions on Item 105 removed .Jan. 1. 1919 106. Fish, fresh, cured, or preserved:" Importation prohibited ex- cept from Canada, Mexico, Newfoundland, and Scandi- navia. Herring from Iceland : Importation permitted on pres- ent return voyage of S. S. Lagarfoss June 13, 191S Fish from United Kingdom : Importation permitted of cured and preserved mackerel and herring Aug. 9, 191S ' For import rulings prior to May 14, 1918, see Tobacco leaf, under Section I. ^For import rulings prior to May 14, 1918, see Fisb, under Section I. ;384 EEPORT OF THE WAR TRADE BOARD. Foodstuffs from Japan : For next 12 months importation of 13,138 tons pennitteil for consumption by Japanese citizens residing in tlie United States. (Tliis ruling appears also under item 77, Vegetables) Sept.26, 1918 Spiced and pickled sprats : Importation permitted from United Kingdom, France, and Italy Dec. 4, 1918 Codtlsh from Japan: Importation of 2,000 tons permitted on sailing vessels Aug. 22, 1918 Pacific cured codfish : Importation permitted from all countrie.? Dec. 13, 1918 Flatfish from China : Importation permitted Dec. 23, 1918 All articles under item 106: Restrictions removed Jan. 1,1919 107. Animal oils : Importation prohibited from Europe only. Restrictions removed Jan. 1, 1919 Items 108-121, inclusive: Importation prohibited except for shipments coming overland or by lake from Canada or overland from Mexico. 108. Aloxite and boro-carbone : Restrictions removed Jan. 1,1919 109. Borax : Restrictions removed Jan. 1, 1919 110. Cement for building purposes: Restrictions remo^•ed Jan. 1,1919 111. Chloride of lime: Restrictions removed Jan. 1,1919 112. Cyanide of soda : Restrictions removed Dec. 24,1918 113. Dairy products : ' Cheese from Cuba : A general license covers importations on S. S. Miami and S. S. Mascotte Aug. 27, 1918 Roquefort cheese from France : Importation permitted when coming as return cargo from convenient ports — Oct. 28, 1918 Butter from Russia : Importation permitted under cer- tain conditions Dec. 13,1918 Cheese: Restrictions removed Dec. 24,1918 All articles under item 113 : Restrictions removed Jan. 1, 1919 114. Ferromanganese and spiegeleisen : From Great Britain : Importation of 12,000 tons permitted, provided ship- ments be made from convenient ports and loaded without delay May 18,1918 Importation permitted of ferromanganese contracted for by American consumers prior to Apr. 6, 1917 Jan. 15, 1919 From all countries : Importation permitted of ferroman- ganese contracted for by American consumers prior to Apr. 6, 1917 Feb. 24, 1919 Restrictions removed Apr. 1, 1919 11.5. Lead : Lead bullion from Mexico : Importation permitted by ocean transportation Dec. 9, 1918 Lead from Guatemala : Importation permitted, subject to priority rights of sugar and coffee Dec. 13, 1918 Lead from all countries : Re.strictions I'emoved Jan. 1, 1919 116. Magnesite : From island of Santa Marguerita (off Mexico) : International Magnesite Co. of San Diego permit- ted to import magnesite on S. S. Norfolk May 13, 1918 Pacific Refractories Go. permitted to Import mag- nesite when shipped on small gasoline boats of Newark type of 88 tons May 17, 1918 From Europe and Mediterranean coast of Africa : Im portations permitted as return cargo from convenient ports when loaded without delay July 3, 1918 From all countries : Restrictions removed Jan. 1, 1919 117. Meat products and preserved meats : ' Sausage casings from United Kingdom, France, or Italy : Importations permitted from convenient ports in Europe and Mediterranean Africa July 30, 1918 > For import vulinss prior to May 14, 1918, see Dairy products, under Section I. 2 Foi- import ralinss prior to May 14, 1018, see Meat, under Section I. EEPOKT OF THE WAR TRADE BOARD. 385 ^^ifL'^f''^^ *■''"? P'^^'' ^^^*^ P°''ts: Importation per mitted for remainder of month when approved by Armv or Navy and United States Shipping Board. Aue 17 IQIS Sausage casings from Algeria: Importation peraiTtid "^- ""' "^'^^^ Afi?ca*'°''''^°'^°' ^°'"*^ '° ^"'■''P® """^ Mediterranean Meat tall7w" from 'mve;"piate' mitrTci"7Arge"ntrn"a 'and °^'' ^' ^^^^ month *^ ■ ^™P^'"*^"''° permitted of 3,000 tons per Meat tallov^lrom' N^w ~ZealTnd7iip"o7t7tlon"permTtted ^^''' ^' ^^^^ <=o?,^o®^^ ^°^ vessels, no single cargo to exceed 500 tons__ Dee 11 1918 Sausage casings from Russia : Importation permitted under certain conditions -r)„„ -.o -.a^o Any restricted commodity from Australia : Importation • ' permitted on sailing vessel Pax Dpp Ifi iqis Meat tallow: Restrictions removed Dec 20 1918 lis P^r.ffii^'R.^f ■".°'^'"' "®" ^^V ^Restrictions removed,!::::! Jan.' 1,' 1919 118. Paraffin: Restrictions removed Ton i iqio 119. Pumice: ■'^"- l- lyi" Importations permitted as return cargo from convenient European ports when loaded without delay June o 1918 Restrictions removed jan 1 1910 120. Starch:" Restrictions removed Zl jan' l' 1919 121. Stone and manufactures thereof: Marble and manufactures thereof from Italy : Importations permitted when loaded at convenient ports without delay Aug 7, 1918 Bluestones and yellowstones from Europe and Mediter- ranean Africa : Importations permitted when loaded at convenient ports without delay Sept. 12, 1918 Amended to include also grindstones and cliff- stone Sept.28, 1918 All articles under item 121 : Restrictions removed Jan. 1, 1919 Items 122-145, inclusive: Importation proibited except for shipments coming (a) overland or by lake from Canada; (b) overland from Mexico; (c) as return cargo from Euro- pean countries, and then only when shipped from a con- venient port and when loaded without undue delay. Amended June 28, 1918, to include Mediterranean Africa. 122. Argols, or wine lees : Argols, wine lees, tartrate of lime, tartaric acid from South America : Importation of 1,500 tons permitted up to Mar. 31, 1919 1 Dec. 5, 1918 Restrictions removed Jan. 1, 1919 123. Bones, hoofs, and horns, unmanufactured : From River Plate district (Argentina and Uruguay) : Importation of 2,500 tons per month permitted Dec. 5, 1918 Restrictions removed Jan. 1, 1919 124. Baskets of wood, bamboo, straw, or compositions of wood: Restrictions removed Jan. 1, 1919 125. Cork, unmanufactured, and manufactures thereof: Restric- tions removed Jan. 1, 1919 126. Edible substances, not specifically provided for in the tariff schedules : Restrictions removed Jan. 1, 1919 127. Eggs, dried, frozen, prepared or preserved, and yolks of eggs : From China : Importation permitted Dec. 9, 1918 Restrictions removed Dec. 12, 1918 128. Fans : Restrictions removed Jan. 1, 1919 129. Fuller's earth : Restrictions removed Jan. 1, 1919 130. Furniture : Restrictions removed Jan. 1, 1919 ' For import rulings prior to May 14, 1918, see Starch, under Section I. 103584—20 26 386 REPOET OF THE WAR TRADE BOARD. 131. Furs and manufactures thereof (item does not include fur hats, fur not on the sliin prepared for hatters' use, nor raw sealslilns from Uruguay) : Rabbit slvins from Australia : Importation permitted of 500 bales for army use May 16, 19IS Sealskins from Iceland : Importation permitted on S. S. Logarfoss on present return trip June 13, 1918' Chinese dogskins: Importation of 450,000 Chinese dog- skins permitted for aviators' garments Aug. 15, 191S Rabbit skins from abroad : Importations permitted If shipped prior to July 1, 1918, provided there was no at- tempt to violate rules of War Trade Board Nov. 25, 191S- Fur skins from Russia : Importation permitted under cer- tain conditions , Dec. 13, 1918- The following were removed from item 131 : Furs and fur skins, undressed, as included under paragraph 491, and undressed skins of hares, rabbits, and dogs, as included under paragraph 603 of tariff act of 1913 Dec. 19, 191S All articles under item 131 : Restrictions removed Jan. 1, 191C 132. Glass and g'assware (item does not include lenses, opera and field glasses, optical instruments, spectacles, eyeglasses, goggles, surveying Instruments, telescopes, microscopes, and plates or disks for use in the manufacture of optical goods): Restrictions removed Jan. 6,1919 133. Glue and glue size: Restrictions removed Jan. 1,1919' 134. Glue stock and rawhide cuttings : Restrictions removed Jan. 1, 191?" 135. Hair, human, and manufactures thereof: Hair from China, Hongkong, and Japan : Importation permitted of 50 long tons per month of uncleaned human hair Nov. 30,1918' Hair nets and nettings from China: Importation per- mitted Dee. 9, 191S All articles under item 135 : Restrictions removed Jan. 1, 1919' 136. Horeshair, artificial, and manufactures thereof : Restric- tions removed Jan. 1, 1919 137. Indigo, synthetic : Restrictions removed Dec. 23, 1918' 138. Ivory, animal, and manufactures thereof: From Belgian Congo : Importation permitted on sailing vessel Rostellan Sept. 10, 1918' From Belgian Congo : Importation permitted for re- mainder of year on Bonneviene Nov. 1,1918 From all countries : Restrictions removed Jan. 1, 1919" 139. Licorice root: From Russia : Importation permitted under certain con- ditions Dec. 13,1918' From all countries : Restrictions removed Dec. 19, 1918 140. Moss and seaweed : Restrictions removed Jan. 1, 1919 141. Paper and manufactures thereof (item does not include books and other printed matter) : Paper hats and paper hat braids : Removed from list of restricted imports May 9, 1918 News print paper from Newfoundland and Canada: A general license covers importations from Newfound- land and by water from points in Canada having no rail connection ., May 18,1918 Mino and Hakone : Until Dec. 31, 1918. importations per- mitted when intended for paper parachutes May 27, 1918 Yoshino (bibulous paper) : Until Aug. 31, 1918, importations permitted for mili- tary and naval use .. May 27,1918 Time extended to .Ian. 1, 1919 Aug. 31^1918. Yoshino (stencil paper) : Until Aug. 31, 1918, importations permitted when intended for stencil paper May 27 1918 Time extended to Jan. 1, 1919 Aug 3l' 1918 liEFORT OF THE WAK TBADE BOARD. 387 Kraft paper from Newfoundland and Canada : A general license covers importation from Newfoundland and by water from points in Canada having no rail connection. June 3, 1918 Paper sticks from China : Importation permitted Dec 23 1918 All articles under item 141 : Restrictions removed Jan' l'l9l9 142. Paper stock, crude ^ (does not include wood pulp) : Restric- tions removed j^„ -^ -j^q-^q 143. Straw and grass, unmanufactured, and manufactures thereof- Restrictions removed jn,, ^ -L9]^g^ 144. Tea waste, siftings or sweepings : ' Restrictions removed Jan' 1 1919. 145. Vanilla beans : Restrictions removed Dec. 19' 1918 Importation restricted to shipments as deck cargo or ship- ments on vessels unfit for essential imports. 146. Quebracho wood : ° Quebracho wood from River Plate district (Argentina and Uruguay) : Item 146 amended to permit importa- tion of 6,000 tons per month from Nov. 30, 1918, to June 30, 1919 ' jy^Q 5 jg^g Restrictions removed ~ jan l' 1919- Section IV. SUPPLEME.NTAEY LiST — ADDITIONAL AbTICLES RESTRICTED FROM TiME TO TiME After May 14, 1918. Asphalt : Importation restricted for year 1918 to 30,000 tons from Ven- ezuela -and .32,000 tons from island of Trinidad June 3, 1918^ Ruling of June 3, 1918, revoked. Outstanding licenses re- voked as to ocean shipments after June 15, 1918. Certain new licenses to be issued June 10; 1918' Restrictions removed Dec. 13, 1918i (For balata, gutta-joolatong, gutta-siak, gutta-percha, see item following Rubber.) Cacao : Outstanding licenses revoked as to ocean shipments after July 20, 1918. Importations limited for remainder calen- dar year to 30,000 tons cacao (cocoa beans) — out of which Army and N.«ivy requirements are to be met first — and to overland shipments from Mexico July 9, 1918 From Haiti and Santo Domingo : Importation, permitted upon United States Navy transports July 31, 1918- From Belgian Congo: Importation permitted on sailing vessel Rostellan Sept. 10, 1918" From Dominican Republic or Haiti : Importation permitted, sugar and molasses to be given priority Nov. 30, 1918' From west coast of Africa : Importation of additional 800 tons permitted on S. S. C. C. Mengel Dec. 6, 1918' From Ecuador : Importation of additional 14,000 tons per- mitted Dec. 6, 1918 From Guatemala : Restrictions removed Dec. 13, 1918^ From all countries : Restrictions removed Dec. 19, 1918- Caffeine, caffeina, theine, or trimethylxanthine : Importation prohibited June 11, 1918- Restrictions removed Jan. 6, 1919' Casein or lactarene : Importation prohibited except from Canada, overland or by lake ; from Mexico, overland ; from Europe, as return cargo. .Tune 17, 1918' Importation prohibited as backhaul from Europe Aug. 20, 191S' From South America : Importations of 500 tons per month permitted between Nov. 30, 1918, and June 30, 1919 Dec. 5, 1918 Restrictions removed Jo^n. 16, 1919" • For import ruling's prior to May 14, 1918, see Paper stock, crude, under Section I. 2 For rulings prior to May 14, 1918, see Tea waste, under Section I. "For import rulings prior to May 14, 1938, see Quebracho wood, under Section I. 388 REPORT OF THE WAR TRADE BOARD. Chrome ore: Outstanding licenses revoked as to ocean shipments after June 15, 1918. After June 8, 1918, shipments permitted from Cuba, Guatemala, Newfoundland, and Brazil, by sea, 43,500 tons prior to Mar. 31, 1919; from New Caledonia, 10,000 tons prior to Dec. 31, 1918; from Canada, overland or by lake ; from Mexico, overland ; from European coun- tries, as return cargo June 8, 1918 Prom New Caledonia : Importation permitted of additional 12,000 tons as ballast for sailing vessels bringing wool from Australia ; to be shipped between July 12, 1918, and Dec. 31, 1918 July 15,1918 Outstanding licenses revoked as to shipments from abroad after Nov. 11, 1918. Importation prohibited except from Cuba, Canada, and Brazil Nov, 12, 1918 Importation permitted of chrome ore actually in transit on Nov. 11, 1918 Jan. 9, 1919 Restrictions removed Jan. 15, 1919 Coconut meat : Copra is broken coconut meat which is not shredded, desiccated, or prepared. Ceylon copra is broken coconut meat which is shredded, desiccated, or prepared. Outstanding licenses for coconut meat in any form revoked as to ocean shipment after June 30, 1918 June 22,1918 Copra (not shredded) from Australasia, East Indies, West Indies, Central America, and Mexico : importation of 5,250 long tons per month permitted from July 1, 1918, to Dec. 31, 1918 June 22, 1918 Copra (not shredded) : Restrictions removed July 15,1918 Ceylon copra (shredded) : Restrictions removed Dec. 20,1918 Copper ore and copper concentrates : Copper ore : Overseas importation prohibited except from Cuba .Tune 10, 1918 Importation permitted also from Canada and Mexico July 15, 1918 Copper concentrates containing less than 60 per cent copper : Importation prohibited except from Cuba, Canada, or Mex- ico July 21, 1918 Copper matte, blister copper, or copper concentrates contain- ing 60 per cent or more of copper : Importation permitted from all countries July 1, 1918 Copper concentrates containing 50 per cent or over of copper : Importation permitted Sept. 28, 1918 Copper ore and copper concentrates — Importation prohibited except from Korea, Newfound- land, West Indies, France, England, west coast of South America, Cuba, Canada, Mexico, copper ore irre- spective of copper content ; from Spain, copper ore con- taining more than 2 per cent copper ; from Cuba, Can- ada, Mexico, copper concentrates irrespective of copper content ; from countries other than Cuba, Canada, Mex- ico, copper concentrates when containing 50 per cent or more of copper :_ Dec. 19, 1918 Restrictions removed Jan. 15,1919 •Cotton, Egj'ptian : Importation limited to 80,000 bales of high-gi-ade cotton for calendar year 1918 May 24,1918 Importation after Jan. 1, 1919, limited to 40,000 bales without restriction as to quality or grade Dec. 18, 1918 Restrictions removed jaji 20,' 1919 ■Cream separators : Importation limited to types which are permitted to be manu- factured in the United States Oct. 8,1918 Restrictions removed jan'_ 15J 1919 ■ ^— lUiJ I Hill XIL ADE BOAED. 389' Dyewoods and vegetable dye extracts, except annatld, rouon rocoa, Orleans, cudbear, arcliil, litmus, madder, safflower, saffron ' sumac, cochineal, and indigo, natural or syntlietic' Importation for remainder calendar year 1918 prohibited ex- cept : From Canada and Mexico by other than ocean trans- portation ; from Europe or Mediterranean Africa as return cargo ; and the following commodities to the extent specified ■ Logwood, 22,500 tons; fustic, 1,250 tons; gambier, 400 tons; cutch (used exclusively for dyeing, not to include mangrove bark extract), 1,250 tons; nutgalls, 750 tons- mangrove bark extract, from West Indies and South American countries, 375 tons; all other -dyewoods in crude state, 500 tons ; extracts and decoctions for dyeing or tanning, not otherwise provided for, from Central and South America, 450 tons Oct 11 1918- Dyewoods from Guatemala: Restrictions removed IJ Dec 13* 19X8 Dyewoods and other natural dyestuffs, including logwood, fus- " ' tic, gambler, cutch, nutgalls, and mangrove bark extract: Restrictions removed Dec 23 1918 Emery and corundum : ' ' Importation prohibited except from Canada, May 9 as amended— May 17 1918 Emery from Naxos : Importation of 4,000 tons permitted dur- ' ing 1918 If shipped from a convenient west European port— May 9 1918 Corundum from India and South Africa : Importation of addi- tional 700 tons permitted on sailing vessels not available for other importation purposes May 17 1918 Corundum grains from England : Importation of 450 tons per- mitted during remainder of calendar year ; Oct. 2, 1918 Corundum ore and grains : Restrictions removed Dec. 12^ 1918 Emery from Turkey: Importation of 1,800 tons permitted. Must be guaranteed not to be used until elapse of 60 days after removal of restrictions Apr. 21,1919 Emery : Restrictions removed. Guaranties given in compli- ance with ruling of Apr. 21, 1919, released May 13, 1919 Flaxseed or linseed : Ocean importation prohibited July 10, 1918 From River Plate district (Argentina and Uruguay) : Impor- tation permitted : 20,000 tons prior to Jan. 1, 1919, and 15,000 tons per month for January, February, March, and April, 1919 Dec. 5, 1918 From Russia : Importation permitted under certain condi- tions Dec. 13, 1918 Restrictions removed Jan. 9, 1919 Furs not on the skin, prepared for hatters' use, including furs car- rotted : Importation prohibited except : From Canada or Mexico by other than ocean transportation ; from Europe and Mediter- ranean Africa as return cargo Sept. 15, 1918 Restrictions removed Jan. 1,1919' Graphite crucibles : Importation prohibited from abroad for remainder of calendar year July 16, 1918 Restrictions removed Jan. 16, 1919' (For gutta-joolatong, gutta-siak, gutta-percha, and balata, see Item following Rubber.) Gypsum or plaster : Licenses withheld until further notice Apr. 25, 1918 Ruling of Apr. 25, 1918, revoked Apr. 30, 1918 Ocean Importation prohibited, except on sailing vessels or on barges Dcmiel Munroe and Ontario, May 25, as amended June 11, 1918 Ocean importation permitted also on barges Bristol and Plymouth July 11, 1918 Restrictions removed Jan. 1, 1919 ' For earlier rulings see Logwood, under Section I. 390 REPORT OF THE WAR TRADE BOARD. ,, ^ A. Hair, animal, other tlian bristles, horsehair, hair of angora goat, camel, and other lili:e animals : Importation prohibited except : From Canada or Mexico by otlier than ocean transportation ; from Europe and Mediter- ranean Africa as return cargo Sept. 15, 1918 Restrictions removed Dec. 13,1918 Hides, skins, leather, tanned skin.s, and manufactures of leather: ' Importation restricted to: Cattle hides of specified weights ■and grades, 57,000 tons from South xVmerica ; cattle hides of other grades than specified, from any country if certified to toe for Government use ; leather, tanned skins, and manu- factures of leather, from any country if certified to be for •Government use; from Canada and Mexico by other than ocean transportation ; from European countries as return ,. : (Cargo, (Isisued June 7, 1918) June 15,1918 S. S. Lagarfoss permitted to bring sheepskins v\?ith vcool on present return trip from Iceland June 13,1918 Hides and skins from Mexico : Importation permitted to New Orleans on S. S. Frontcra provided vessel carry a full cargo of sisal below deck July 23,1918 Hides and skins from east coast of South Africa : Importa- tions permitted if contracted for prior to June 15, 1918 Aug. 28, 191S Goatskins or sheepskins from India : Importations permitted under certain conditions if contracted for prior to June 15, 1918 Sept. 25, 1918 Hides and skins from Nicaragua : Importation permitted. Priority given to 11 other articles Oct. 12, 1918 Kangaroo skins from Australia : Importations permitted if contracted for prior to June 15, 1918 Nov. 13, 1918 Hides and skins (not including fur skins) : Importations per- mitted from any country if contracted for prior to .lune 15, 1918 Nov. 22, 1918 All grades of hides, skins, leatlier, tanned skins, and manu- factures of leather : Ruling of June 15, 1918, revoked except as to importa- tions from Canada and Mexico by other than ocean transportation and from European countries as return cargo Nov. 27,1918 For 90 days, beginning Nov. 27, 1918, importation of 47,910 long tons permitted as follows : Cattle hides 22, 500 Goatskins 8, 100 Calfskins 7, 875 Sheepskins 6,000 Horse, colt, and ass skins 1, 620 Buffalo hides 1, 350 Kangaroo, pig, dog, deer, and all other skins and leathers 465 47, 910 Hides, skins, leather, etc., from Guatemala : Restrictions removed Dec. 13,1918 From Russia: Importation permitted of heavy cattle skins, goat and kid skins, calf and kip skins, sheep and lamb skins, horse or colt or ass skins. Conditions at- tached Dec. 13, 1918 Hides, skins, leather, etc., from all countries: Restrictions removed ^ Dec. 20,1918 Iron ore : Ocean importation prohibited except : From Cuba ; from Swe- den and Spain as ballast in return ships May 17,1918 Low phosphorous Lucainena spathic iron ore from Spain: Eastern Steel Co. permitted to import 10,000 tons monthly for three months, subject to conditions of list of restricted imports No. 1 as to convenient ports .Tune 29, 1918 1 For earlier rulings see Hides from Mexico, under Section '■ KBPORT OF THE WAK TRADE BOARD. 391 ^'°Z^hl^'°''^ \^Sll "'''' ^''""^ SP^i"> Sweden, Norway, and ^?lv^ fa^ri='^'^'^'*°"^^ importation permitted pr^',r to Jul J 1, 1919 of a maximum total of 70,000 tons__ Oct SI IQIS -Calcined spathic iron ore from England • ImnortatronVnpV mitted also from England when shfpped as return u", ''"" Doc 7 1918 Restrictions removed t i=-' Latch knitting needles : '^^"^ 15.1919 Importation prohibited ,„„ t„ ,„,„ Restrictions removed V> ^' Linseed. (See Flaxseed.) ^ '^''^■- 9' 1918 Manganese ore : Importation prohibited from Asia and Australia t„1v '>o iQiq iAIanganese ore from .Tapan : Iinp„rtation of 2,OOo""tons""De"r~ ' -"• -'•^^^ la'^m/*''' ^^fl^-llgl^t batteries, to be shipped between .Uig . r. ?' ^^V"' a^cJ June 30, 1919, in Japanese vessels An- 19 iqis Restrictions removed t ''^^ |°' i'l;^ Monazite sand: "^'^"- 15. 1919 ImportaUons from abroad prohibited during remainder of cal- endar year except : From India, 150 tons to Lindsav Co of Chicago ; from Brazil, 600 tons to Welsbach Co., of Glouces- ter N. J _ j^jj^g 2Q Amended to increase amounts to : 500 tons to Lindsav Co from India : 1,000 tons to AVelsbach Co. from France___ July 13 1918 Restrictions removed j^„ 15*1919 New Zealand fiher (also known as New Zealand flax and New' ' i?;ealand hemp) : Importation prohibited except 1,700 tons on sailing vessels Opt 21 1918 Amount iucrea.sed to 3.000 tons Xov 3o' 1918 Amends ruling of Oct. 20, 1918, to permit importation of " ' ' ' 400 tons on S. S. Moaiiia and S. S. Paloona Dec. 16, 1918 Restrictions removed j^gp ig'ifug (For Quebracho extract, see Tanning materials and tanning ex- tracts.) Eattans and reeds : Importation proliibited except: From Canada or Mexico by other than ocean transportation ; from Europe as return cargo Aug. 6, 1918 Restrictions removed Dec. 9 1918 Rice, raw (originally Included under item 8, list No. 1, All bread- stuffs except wheat and wheat flour, but removed Apr. 12, 1918, .Ijefore list No. 1 became effective) : Importation restricted to 159,000 tons for shipment before Aug. 31, 1918 May 16, 1918 Importation prohibited except shipments in bond to West Indies or Central America Aug. 1, 1918 Amended to include all shipments in transit to these re- gions, whether in bond or otherwise Nov. 7, 1918 Restrictions removed Jan. 10, 1919 Importation prohibited except for shipments in transit Jan. 21, 1919 Importation permitted of rice purchased in good faith for im- portation into the United States, .such purchases being made between Jan. 10 and Jan. 21, 1919 Feb. 1, 191!) Restrictions removed Mar. ]7, 1919 Rubber, crude : Ocean shipments prohibited except 25,000 tons between May 6, 1918, and July 31, 1918 May 9,1918 16,666 tons overseas importations permitted during August and September, 1918 Aug. 6, 1918 Importation of specified grades permitted from South and Central America June 4,1918 Importation permitted from Belgian Congo on sailing vessel Rostellan - Sept. 10, 1918 25,000 tons overseas Importation permitted during October, November, and December, 1918, one-fourth to come from Central and South America Sept. 28, 1918 Importation of additional 7,500 tons permitted for period end- ing Jan. 1, 1919 Nov. 22, 1918 392 REPORT OF THE WAR TRADE BOARD. Restrictions removed upon Importation from Guatemala Dec. 13, 191& Restrictions removed. (Affects only shipments made from country of origin. No licenses will be issued for shipments from any country other than country of origin until Feb. 13, 1919.) Dec. 14, T9IS Gutta-joolatong, gutta-siak, gutta-percha, and balata : From June 1, 1918, to May 31, 1919, overseas importation re- stricted to : Gutta-percha, 650 tons ; balata, 1,400 tons June 3, 1918: Gutta-siak : Importation of Y40 tons permitted for Govern- ment purposes July 9, 1918: Gutta-joolatong: Importation of 3,000 tons permitted for re- mainder of calendar year tor Government purposes Aug. 6,1918 Gutta-siak : Importation of additional 900 tons permitted dur- ing remainder of calendar year Nov. 29, 1918 Restrictions removed Dec. 23, 1918' Rubber goods, manufactured : Ocean shipments prohibited June 26, 1918 Restrictions removed Dec. 19, 1918 Seeds : Hemp seed and canary seed. Ocean shipments prohibited Sept. 19, 1918 Canary seed: Restrictions removed Dec. 13,1918 Hemp seed : Restrictions removed Jan. 6, 1919 Shellac, button lac, seed lac, garnet lac, and keerie or refuse lac : Importation prohibited except : From Canada or Mexico by other than ocean transportation ; from Calcutta, 5,000 tons between Oct. 1, 1918, and Mar. 31, 1919. Shipments on ves- sels of United States Navy for military or naval use Aug. 16, 191S Restrictions removed Dec. 20, 1918 Tagua nuts or vegetable ivory : Importation prohibited except : 12,000 long tons for remain- der of jcalendar year, as follows: From Ecuador, 7,000 long tons, for Government purposes ; from Colombia, 3,000 long tons, for Government purposes ; from Panama, 2,000 long tons ; additional importation permitted on ships unsuitable for other necessary imports June 2, 1918 Restrictions removed Jan. 6, lOlO- Tanning materials and tanning extracts, except quebracho wood : * Importation prohibited except : From Canada or Mexico by other than ocean transportation ; from Europe as return cargo ; from Central and South America, 60,000 long tons solid quebracho extract and 15,000 long tons mangrove bark, divi-divi, and wattle bark July 11,1918. Importation permitted of 12,000 tons per month from Nov. 30, 1918, to June 30, 1919 Dec. 5,1918 Restrictions removed Jan. 11,1919 Tin: Pig tin, tin ore, tin concentrates, and any chemical extracted therefrom : Importation limited to shipments consigned to the United States Steel Products Co.' Oct. 20, 1918 Control removed except in the case of pig tin. Pig tin purchased prior to Oct. 1, 1918, to be permitted to be imported even if not consigned to the United States Steel Products Co Nov. 1, 1918 Control removed as to pig tin shipped from countries of origin after June 29, 1919 Aug. 1, 1919 Control removed as to pig tin shipped from countries other than countries of origin Aug. 15, 191^ Tin from Dutch East Indies : Importation prohibited Dec. 23, 1918 ' See also item 146, Quebracho wood. s Although this is a " control " ruling in form, It operated as an embargo, Inasmuch s the United States Steel Products Co. made no application for Import licenses REPORT OF THE WAR TRADE BOARD. 393, Metals of any kind containing more than 20 per cent of tin : Importation prohibited. (In case of metal alloys "20 per cent of tin " interpreted to mean 20 per cent of the metal content of the mass) Feb. 3 1919 Restrictions removed as to shipments from countries of origin after June 29, 1919 Aug. 1, 1919 Restrictions removed as to shipments from countries other than countries of origin Aug 15 1919- Tin ore and tin concentrates : ' Importation prohibited until June 7, 1919 Mar. 8, 1919 Restrictions removed as to shipments from countries of origin after June 7, 1919 ^uly 1, 1919 Restrictions removed as to shipments from countries other than countries of origin July 14, 1919- Varnish gums (copal, kauri, and dammar) : Until Jan. 1. 1919, importation prohibited except : Ocean ship- ments for Government use ; shipments from Mexico or Can- ada by other than ocean transportation; shipments from Europe as return cargo ; shipments of copal or Manila gum when coming from Philippine Islands; shipments of 3,000,000 pounds of kauri gum Oct. 11, 191& Copal from Belgian Congo : Importation permitted on Bonne- viene for remainder of year Nov. 1, 1918 Copal and palm kernels from Belgian Congo : Importation of 2,000 tons permitted on Atlantan or Bassam if made before Jan. 1, 1919 Nov. 28, 1918- Revoked. Importation of 2,000 tons permitted on S. S. Nembe Dec. 9, 1918. Varnish gums: Restrictions removed Dec. 20,1918- Wood as classified under tariff paragraph 647 : Importation prohibited except : From Canada or Mexico by other than ocean transportation ; from Barope and Mediter- ranean Africa as return cargo. (Cedar excepted under this ruling.) (Balsa wood excepted Nov. 13, 1918. For restric- tions on balsa wood, see following item) Oct. 26, 1918^ Importation permitted from Canada by any means of trans- portation__., Dec. 11, 1918 Restrictions removed Jan. 6, 1919 Wood, baisa : Importation prohibited except : From Canada or Mexico by other than ocean transportation ; from Europe and Mediter- ranean Africa as return cargo ; from other sources, a total of 1,600,000 board feet Oct. 11, 1918^ Importation permitted from Canada by any means of trans- portation Dec. 11, 1918; Restrictions removed Jan. 6, 1919- EXHIBIT III. LIST OF IMPORTS CONTROLLED BY GOVERNMENT AGENCIES. Alfalfa seed: Sept. 18, 1918-Jan. 6, 1919. Licenses Issued only if approved by Seed Stocks Committee of 'tlie De- partment of Agriculture. Bananas and plantains : July 24, 1918-lMarcli 3, 1919. Nil licenses issued except for shipments on vessels approved by Carib- bean Committee of the United States Shipping Board. Burlap, burlap bags, and .lute :* Oct. 8, 1918-Feb." 1, 1919. Allocation by Bureau of Imports in conjunction with War Industries Board and United States Pood Administration. ■Castor beans and castor oil : .Tune 11, 1918-Jan. 6, 1919, Licenses for shipments from West Indies, Mexico, Central America, Colombia, and Venezuela, not consigned to United States Govern- ment, issued only if approved by Bureau of Aircraft Production. Coconuts : May 9, 1918-Nov. 20, 1918. Licen.nes issued only upon agreement to deliver to Gas Defense Service 3.5 pounds of shells for each 150 pounds of coconuts imported from West Indies and 40 pounds for each 150 Imported from Pacific Ocean islands. Coffee : March 14, 191S-0ct. 18, 1918. Licenses referred to Coffee Division of United States Food Adminis- tration. Oct, 18, 1918 (as amended, Oct, 28, 1818) -Jan, 16, 1919, ' Licenses issued only to United States Sugar Equalization Board (Inc, ) or its nominees. Corn from Kiver Plate district : Sept. 28, 1918-Jan. 10, 1919. Licenses issued only if agreed upon ,1ointly by United States Food Ad- ministration and United States Shipping Board, Dves and drugs from Germany : May 28, 1919- Lieenses referred to Advisory Committee on Dyes of War Trade Board. Food grains and fodders (wheat,' corn,' barley, rve, oats, and buckwheat) : March 23, 191S-Feb. 13, igiS," Licenses referred to United States Food Administration. Graphite of crucible grade : Oct. 2, 191S-Jan. 16, 1919. Licenses issued only if approved by Chemical Section of War In- dustries Board. Kapok : June 12, 1918-Jan. 17, 1919. Licenses issued only for Government purposes. Mahog-iny logs and lumber : Aug. 31, 1918-Dee. 19, 1918, Licenses issued only if certilied by Director of Lumber of War In- dustries r.nard as suitable and necessary for Government use. ' Ruling based on instruction oi; W.ir Trade Board that licenses be approved by War Industries Board and T'liited States Food Administration, 2 See wlieat and wlieat flour. ^Import rei-triction on co'u removed .Tan. 10, IfHO, * riate of reinova] of inijort vcstiictions. .'^94 REPORT OF THE WAR TRADE BOARD. 395 Newspapers, magazines, and periodicals from Gernianv • May 13, 1919-Jnly 14, 1919. ' ^^'menfofltefe." '"''"■°''''' ''^ ''"''•'''" °' ^""'"^^ '^"'^'^ '^"'^ ^^P^'^' Nitrate of soda : April 11, 1918- July 1, 1919. Quebraclm wood':''*""'^ °"'^' *" ^™' ""^^'''''^'^ ^'^ War Industries Board. May 17, 191S-Dec. 5, 1918. Salvarsau and equivalents : Nov. 23, 1918-June 16, 1919. Licenses issued only upon recommendation of Federal Trade Corn- June 16, 1919- Control transferred from Federal Trade Commission to United States i'uDlic Heaitn Se]'vice. Sutra r : Dec. 12, 1917- Licenses issued only upon guaranty not to sell witliout approval of Lnited States Food Administration or its agents Jan. 13, 1919- Licenses issued only to United States Sugar Equalization Board (Inc ) or its nominees. Tin ore. tin concentrates, and chemicaLs extracted therefrom- Oct. 9, 1918-Xov. 1, 1918. Licenses issued only for consignments to United States Steel Products Co. Tin. pig : Oct. 9, 1918-Aug. 1, 1919. Licen.ses issued only for consignments to United States Steel Products Co. Tinned beef from River Plate ports; Aug. 17, 191S-Aug. 31, 1918. Licenses issued, if approved liy Ai-my or Navy and bv Division of Plan- ning and Statistics of United States Shipping Board. Vegetable ivorv : May 27, 1918-Jan. 6, 1919. Licenses limited to 12,000 ' tons and to importations on ships considered by United States Shipping Board unsuitable for necessary imports. Wheat and wheat flour : May 15, 1918-JuIy 1, 1919.= Licenses issued upon agreement not to sell without approval of United States Food Administration or its agents. Oct. 22, 1918- July 1, 1919.= No licenses issued for impijrtation of wheat and wheat flour except to cover the following : (a) Shipments of wheat or wheat flour originating in Canada or Mexico when brought across the border in wagonload lots by producers. (6) Shipments consigned to United States Food Administration Grain Corporation, or to Wheat Export Co. (Ltd.). (c) Shipments from Canada or Mexico representing customary retail border traffic. (d) Shipments in bond in transit to allied countries. (e) (Added Mar. 12, 1919.) Shipments of wheat, wheat flour, seed and salvage wheat approved by United States Food Adminis- tration Grain Corporation. Wool from Uruguav, Argentina, and South Africa : July 28, 1918-Jan. 10, 1919. Licenses issued only to Quartermaster General of United States Army or his nominees. 1 See p. 392. = Control transferred to United States Wheat Director by proclamation of the President issued .June 24, 1919. EXHIBIT IV. TRADE ORGANIZATIONS AND THE COMMODITIES CONTROLLED BY THEM IN COOPERATION WITH THE WAR TRADE BOARD. American Diamond Committee (Inc.) — Diamonds, including polished diamonds, rougli diamonds, tops, ends, and otlier parts of rough diamonds; industrial diamonds, bort, diamond powder, carbon, diamond dies, and tools set with dia- monds; platinum, including crude and refined platinum; platinum-iridium alloys in the form of ingot, sheet, or wire; platinum sponge, platinum gauze, platinum cliloride, platinum scrap of all kinds; platinum in finished manu- factured form ; iridium ; osmiridlum ; osmium ; palladium ; rhodium ; ruthe- nium. American Iron and Steel Institute. — Tin ore, chloride of tin, pig tin ; ferroman- ganese ; spiegeleisen ; all ferro-alloys ; chrome ; chrome ore ; cobalt ; cobalt ore ; manganese ; manganese ore ; molybdenum ; molybdenum ore ; titanium ; tita- nium ore ; tungsten ; tungsten ore ; scheelite ; wolframite ; vanadium ; vana- dium ore ; or any chemicals extracted therefrom. Asbestos Trades Bureau. — Asbestos. Chemical Alliance (Inc.). — Pyrites. Emery and Corundum Importers and Manufacturers' Association (Inc.). — Emery and Naxos emery ores. Ivory Nut Importers' Association (Inc.). — Tagua nuts or vegetable ivory. Plumbago-Graphite Association (/mo. ).— Plumbago ; graphite; graphite cruci- bles. Rubber Association of America (Inc.). — Crude rubber, including gutta-joola- tong, gutta-percha, gutta-siak, balata, scrap, and reclaimed rubber. Silk Association of America. — Silk noils ; silk noil yarns ; garnetted silk ; silk waste; spun silk; pierced cocoons. Tanners' Council of the United States of America (Inc.). — Leather raw stock (hides and skins, including all pickled hides and skins and all India tanned or rough tanned hides and skins, not finished leather, except wooled or haired sheepskins, wooled or haired lambskins) ; all materials for tanning or dress- ing leather, and all substances from which tanning materials can be ex- tracted ; all imported finished leathers ; haired goatskins and haired kid skins (after Apr. 15, 1918). Textile Alliance (Inc.). — Wool and animal hair, and the tops, noils, yarn, and waste of same, and woolen rags and crgpe fiber ; wooled or haired sheepskins ; wooled or haired lambskins; haired goatskins and haired kid skins (before Apr. 16, 1918) ; jute and burlap, and jute or burlap bags; cotton and flannel- ette raisings; flax (importations of raw flax, hackled flax or flax line, flax tow, flax tow yarns, flax line yarns, linen thread, twines, and cordage are de- liverable only to the United States Government or its nominees, subject to the condition that the merchandise will be used for the manufacture of mate- rial required by the United States Government) ; linen (until Apr. 2, 1918) ; mica ; palm oil and palm kernel oil ' ; castor beans and castor oil " ; manila fiber ; kapok ; human hair. United States Shellac Importers' Association (Inc.). — Shellac; button lac; gar- net lac ; seed lac ; stick lac ; keerie or refuse lac. 1 The Oils and Oil Seeds Association of America (Inc.) cooperated in the care of palm oU and palm-kernel oil. 2 The American Castor Bean and Oil Association (Inc.) cooperated In the care of castor beans and castor oil. 396 EXHIBIT V. Cmnmodilies Jnr which importers irere required to furnish to the United States Ooverntnent or its nominees an option to purchase. Commodity. Requirement went into effect. Requirement lifted. Wool : Castor oil and castor beans Platinum Iridium and palladium Crude rubber , Solid quebracho extract Gutta-joolatong, ^utta-siak, gutta-percha, balata Hides, skins, leather tanned skins, and manufactures of leather Silk noils, silk noil yarns, garnetted stock, and silk waste Dec. Feb. Mar. Apr. May May June June Sept. 1.5, 1917 21,1918 27,1918 5, 1918 1,1918 6,1918 1,1918 16, 1918 11,1918 Jan. Jan. Dec. Do. Dec. Jan. Dec. Jan. Dec. 10, 1919 6, 1919 12, 1918 14, 1918 11,1919 23,1918 7,1919 20, 1918 397 EXHIBIT VI. List of commodities for which allocation wok prorided by the War Trade Board. Commodities. Amounts for which import licenses mi}iht be issued. Date on which ruling of the Bureau of Im- ports was issued, 1918. Argols, wine lees, tartrate of lime, and tartaric acid. Asphalt ; Balsa wood Burlap, burlap bags, and jute- Bones from River Plate 1,500 tons from South America before Apr. 1, 1919. »-,-1»"" 62,000 tons from Venezuela and Trinidad before Jan. 1,1919. Cacao Casein orlictarenefrom South America Chinese dogskins Chr jmite C jconut meat Cidfish from Japan Copal from Belgian Congo Corundum 2, 500 tons per month r30,000 tons before Jan. 1, 1919 il4,800tOTS 500 tons per month to June 30, 1919. 450, 000 skms 2,000 tons. Creosote oil Cratle rubber Dyewoods and vegetable dye extracts Egyptian cotton 4.50 tons of finished grains before Jan. 1, 1919. 2,000,000 gallons from Japan before Jan. 1, 1919. 74,166 tons, before Jan. 1,1919 Ferromanganese and spiegeleisen from Great Britain. Flax duck canvas Flaxseed or Unseed from River Plate.. Gutta-joolatong . Gutta-siak 27,475 tons (specified amounts for various kinds) before Jan. 1, 1919. (•Total importations for 1918 limited < to 80,000 bales. 140,000 bales after Jan. 1, 1919 12,000 tons Hides, skins, leather tanned skins, and manufactures of leather. 80 tons 20,000 tons before Jan. 1, 1919; 15,000 tons per month for January, Febru- ary, March and April, 1919. 3,000 tons before Jan. 1, 1919 1740 tons \900 additional tons before Jan. 1, 1919. . Ivory (animal) from Belgian Congo Japanese foodstuffs Kapok Manganese ore from Japan Meat tallow from River Plate New Zealand liber, New Zealand flax, and New Zealand hemp. Palm kernels from Belgian Congo Rice Tanning materials Tanning materials excepting que- bracho wood. Quebracho wood from Argentina and Uruguay. Varnish gums Vegetable ivory 70,000 tons of low phosphorus iron ore from Spain, Sweden, Norway, and North Africa, if actually '- mported into the United States before July 1,1919. 13,138 tons during next 12 months. 2,000 tons before July 1, 1919. 3,000 tons per month 4,700 tons; increased to 3,000 tons . 169,000 tons if shipped before Sept. 1, 1918 75,000 tons before Jan. 1, 1919 12,000 tons per month toJuneSO, 1919 6,000 tons per month to June 30, 1919 12,000 tons before Jan. 1, 1919. Dec. 4. June 3. Oct. 8. Do. Dec. 4. July 9. Dec. 2. Dec. 4. Aug. 15. June 5. June 22. Aug. 22. Nov. 1. Oct. 2. Aug. 10. May 17, June 4, Aug.( Sept. 28, Nov. 20. Sept. 28. May 24, June 17. Dec. 14. May 18. Aug. 15. Dec. 4. Aug. 6. July 9. Nov. 26. June 7, Sept. 25, "Oct 8, 12, 30, Nov. 8, and Dec. 4. Oct. 31. Nov. 1. Sept. 26. June 12. Aug. 19. Dec. 4. /Oct. 12. tNov. 19. Nov. 1. May 16. June 25.1 Dec. 4. Do. Sept. 28. /May 27. tluly 1. 1 Revoked Dec. 4, 1918. 398 EXHIBIT VII. EXPORT COXSF.nVATTOX LIST, EFFECn\E DECEiMBER B, lUlS, COXTAINlN(i. ADDITIOXS AND MODIFICATIOXS FROJt OCTOBER 15, 1918, TO DECEMBER- 6, 1918. (THIS SUPEKSEDKS ALL PREVIOX'S EXPORT CONSERVATIOM LISTS.) [Issued by the War Trade Board of the Tnited States of America, Washington,] The War Trade Boarcl herewith present the export conservation list of December 6, 1918, containing certain additions and modifications and super- seding all previous export conservation lists. All additions since the last issue (Oct. 15, 3918) appear in italics. The list as amended will become effective- December 6, 1918. Since the preceding export conservation list (Oct. 15, 1918) a large number- of comiuodities have been removed from the list, including numerous items classified under iron and steel, machinery, tin, various metals and their alloys, chemicals and drugs, hairs, fibers, cotton, leather, electrical supplies, and articles manufactured from rubber. Other changes are in prospect and will be- made public at intervals. The notations X-1, X-2, X-3, X-4, X-5, X-6, etc., indicate the supplemen- tary information forms to be used in addition to Form X when making appli- cation for license to ship the respective commodities. Shippers are reminded that, except when specifically stated in the list to- the contrary, individual licenses are required for the shipment of all commodi- ties covered by the export conservation list to all countries, including, Canada and Ne-nrfoundland, and the exceptions to this general rule have in all cases,, for convenience in reference, been indicated by a star ( * ) . Commodities not contained in the export conservation list may be shipped' to Canada and Newfoundland at present without individual export licenses. A special export license number RAO-8 has been issued to the Customs Divi- sion, authorizing collectors of customs to allow such shipments to be exported without individual export licenses, provided each shipment is accompanied by- shipper's export declaration (Customs Cat. No. 752.5-WTB 105) in quadru- plicate. This form is no longer issued by the War Trade Board, and is pro- curable from the Customs Division of the United States Treasury Department or from the United States customs authorities in the various cities. Export Conservation List, December 6, 1918. (Additions since Oct. 15, 1918, are printed in italics.) A. Alcohol, as follows: Ethyl, X^2, Acetaldehyde. Grain, X-2. Acetanilide Methyl, X-2. Acetate of cellulose, X-2. Methylated spirits, X-2. Acetates, all, X-2. Molasses, X-2. Acetic acid and its derivaties, X-2. -^^ ood, X-2, Acetic acid, glacial, X-2. Alloys, steel, X-2. Acetic anhydride. Almond (bitter), artificial oil of. Acetone, X-2. Alpaca , as follows : Acid phosphate, X-2. Clips, X-lc!. Acids, as follows : Manufactures of, X-5. Acetic, and its derivatives, X-2. Rags, X-ld. Acetic, glacial. X-2. Baw ^r^^- Benzoic, and its salts, X-2. ^^\^^%' ■^'^'^■ Carbolic (phenol), and its deriva- Alum, X-2: tives X-2 Animonin, X-2. Nitric, 'and Its salts, X-2. C'"'".™<'v^o^' Picric X-2 Ferric, X-2. Phosphoric, X-2. , Potash, X-2, Salicylic, X-2. *Aluminum, ingots. X-2. Sulphuric, and its salts, X-2. Amidoazobenzol, X-2. 399 400 KEPORT OF THE WAB TRADE BOARD. Amidophenol. ( Paraamidophenol. ) Ammonia and its salts, X-2. Ammonia, anhydrous, X-2. Ammunition, X-2 : Cartridges and shells, loaded and unloaded, X-2. Percussion caps, X-2. Shot, in bulk, X-2. Shotgun shells, X-2. Amorphous phosphorus, X-2. Anhydrous ammonia, X-2. Aniline oil, X-2. Aniline salts, X-2. Animal fats, X-1. Animal oils, X-1. Animals, as follows: Cattle, X-1. Hogs, X-1. *Horses. (Individual licenses not required to Canada and New- foundland.) *Mules. (Individual licenses not required to Canada and New- foundland. ) Sheep, X-1. *Anodes, nickel, X-2. Antimony, X-2 : Black, X-2. Oxide of, X-2. Salts, X-2. Antiphlogistine. Apples, dried, X-1. Apricots, dried, X-1. Arms, X-2. (See also Firearms.) Arsenate of lead, X-2. Arsenate of soda, X-2. Arsenic and compounds thereof, X-2. Arsenite of soda, X-2. Artificial silk, unmanufactured. Ash, barrel heads made of, X-2. Ash, soda, X-2. Ash staves, X-2. Ash wood, X-2. (See Wood.) Ashes, wood, X-2. Axle and other mineral-oil greases. B. Backs, fat, X-1. Bacon, X-1. Bagging, vegetable fiber, except cotton bagging, X-2. Bags, as follows : Jute, X-2. Vegetable fiber, except cotton bags, X-2. -Balata. Balls, naphthalene. B.irk, cinchona, and products, X-2. Barley, X-1. Barley flour, X-1. Barley meal, X-1. Barrel heads (oak, ash, birch, walnut), X-2. *Bars, copper, X-2. Bars, steel sheet, X-2. Bean meal, soya, X-1. Bean oil, soya, X-1. Beans, X-1 : Canned, X-1. Castor, X-2. Cocoa. Soya. Velvet, X-1. Beef products (canned, preserved, and fresh), X-1. Beet sirup, X-1. Belting leather, X-3. Benzaldehyde, X-2. Benzene (from coal tar), X-2. Benzine (from petroleum). Benzine oil. Benzoates, all, X-2. Benzoic acid and its salts, X-2. Benzol and its derivatives. Beverages, nonalcoholic, containing sugar. Bichromates, all, X-2. *Billets, steel, X-2. Binder twine, X-2. Bircli barrel heads, X-2. Birch shocks, X-2. Birch staves, X-2. Birch wood, X-2. (See Wood.) Biscuits, X-1. Black antimony, X-2. Block tin. X-4. *Bloonis, steel, X-2. Bone flour. Bone, ground. Bone meal. Bones, as follows : Shin. Thigh. Unground. Book paper. Bread, X-1. Brewers' grains. Bristles, hog, as follows : Manufactures of. Unmanufactured. Bromides, all, X-2. Bromine and its compounds, X-2. Buckwheat, X-1. Buckwheat flour, X-1. Burlap, X-2. Butter, X-1 : Cocoa, X-1. Coconut, X-1. Peanut, X-1. Butter substitutes, X-1. Cake, cottonseed, X-1. Cake, oil, X-1. Camel's hair, as follows : Clips, X-13. Manufactures of, X-5. Hags, X-13. Raw. X-13. ■Waste, X-13. BEPOKT OF THE WAS, TRADE BOAED. 401 Camphors (camphor, eucalyptol, men- thol, thymol), X-2. Candy. Cane sirup, X-1. Canned products. (See distinctive name of product.) Caps, percussion, X-2. Caramel coloring (sugar product), X-1. Carbines, X-2. Carbolic acid (phenol) and its deriva- tives, X-28. Carbon tetrachloride. Carbonate of ammonia, X-2. Carbonate of soda, X-2. Carrier pigeons. Cartridge cloth, silk, suitable for use as powder bags. Cartridges and shells, loaded and un- loaded, X-2. Cashmere, as follovsfs : Clips, X-13. Manufactures of, X-5. Rags, X-13. Raw, X-13. Waste, X-13. Castor beans, X-2. Castor oil, X-2. Castor oil, sulphonated, X-2. Cattle, X-1. Cattle manure. Caustic potash, X-2. Celluloid and articles manufactured therefrom, where celluloid Is the chief constituent. Cellulose, acetate of, X-2. Cereals, X-1. Cevadilla, X-2. Charcoal. Cheese, X-1. Chestnut extracts, X-2. Chestnut wood, X-2. (See Wood.) Chlorates, all, X-2. Chlorbenzol, X-2. ( Monochlorbenzol. ) Chloride of ammonia, X-2. Chlorine, X-2. Chloroform. Chocolate. Chrome alum, X-2. Chromic acid and Its salts. Chromium, chemical compounds there- of and their products, X-2. Cinchona bark and products, X-2. Clips, as follows: Alpaca, X-13. Camel's hair, X-13. Cashmere, X-13. Mohair, X-13. Woolen, X-13. Worsted, X-13. Of all similar hairs, X-13. 103584—20 ^27 Cloth, as follows : Burlap, X-2. Press, made of human hair and all animal hairs, or of jute, X-5. Silk cartridge, suitable for use as powder bags. Clothing, second-hand (woolen), X-15 Cloves, oil of, X-2. *Coa], X-6. (Individual licenses not required to Canada and Newfound- land.) Coal tar and its derivatives, X-2. Coca leaves and products. Cocaine and its salts, X-2. Coco fiber, X-2. Cocoa. Cocoa beans. Cocoa butter, X-1. Cocoa powder. Coconut butter, X-1. Coconut oil, X-1. Cod-liver oil. Codeine and its salts, X-2. Coffee, X-1. *Coke, X-6. ( Individual licenses not re- quired to Canada and Newfound- land.) Compound lard, X-1. Condensed milk (including powdered milk, evaporated milk, and preserved milk of all kinds), X-1. Confectionery, including chocolate candy. Containers, empty (tin), X-4. Copper, as follows: *Bars, X-2. *Ingots. *Pigs, X-2. Copra, X-1. Copra oil, X-1. Corn, X-1 : Canned, X-1. Corn flour, X-1. Corn grits, X-1. Corn hominy, X-1. Corn (Indian samp), X-1. Corn (maize), X-1. Corn meal, X-1. Corn oil, X-1. Corn sirup, X-1. Cornstarch, X-1. Corrugated furnaces for ships. Cotton, Egyptian. Cotton aeroplane duck. Cotton linters. Cotton seed, X-1. Cottonseed cake, X-1. Cottonseed meal, X-1. Cottonseed oil, X-1. Crackers, X-1. Crude oil. Crude rubber. 402 REPORT OF THE WAR TRADE BOARD. Cyanamlde, X-2. Cyanides, all, X-2. Cyanogen and derivatives, X-2. Cylinder oil. D. Dates, X-1. Degras. Degras, moellon. Dental gold, X-29. Dental supplies. Dextrine, X-1. Diamonds and precious stones of all kinds. Dimethylaniline, X-2. Dimethyl ketone, X-2. DinltrolDenzol, X-2. (Metadinitrobenzol. ) Dlnltrochlorbenzol, X-2. Dinitrophenol, X-2. Diphenylamine, X-2. Double acid phosphate. Dry paste flour. Duck, cotton aeroplane. Dyestuff intermediates. DyestufCs (does not include artists' colors or paints, enameled paints, pig- ments, or stains, dry or in pulp). E. "Electrotypes. (Individual licenses not required to Canada and Newfound- land.) Empty tin containers, X-^. Engine oil. Ethyl alcohol, X-2. Ethylmethyl ketone, X-2. Evaporated milk, X-1. Explosives, X-2. Extracts, as follows : All for tanning hides, X-2. Chestnut, X-2. Quebracho, X-2. Sumac, X-2. F. Farina, X-1. Fat backs, X-1. Pats, animal, X-1. Feeds. Felts (paper makers'), X-5. Ferric alum, X-2. Ferrocyanide of potash, X-2. *Ferrosilicon, X-2. Fertilizers, as follows: Acid phosphate, X-2. Ammonia and its salts, X-2. Bone flour. Bone, ground. Bone meal. Cyanamide, X-2. Manure. (See Manure.) Mixed. Potash, X-2. (See Potash and its compounds. ) Sodium nitrate, X-2. Superphosphate, X-2. Tankage. Wood ashes, X-2. Fibers, as follows: All vegetable, except cotton (in- cludes coco fiber, flax, hemp, jute, kapok, maguey, piassaba, ramie, rice root, sisal, istle, Tampico, manila, sunn, tula, and the like), X-2. Products manufactured from veg etable fibers, except cotton, hemp, and manila, X-2. Figs, X-1. *Films, as follows : Moving-picture and other photo- graphic films, unexposed, ex- posed but undeveloped, and ex- posed and developed. (Indi- vidual licenses not required to Canada and Newfoundland for exposed and developed films. ) Firearms, X-2. Carbines, X-2. Pistols, X-2. Revolvers, X-2. Rifles, X-2. Shotguns, X-2. Fir timber, X-2. (See Wood.) Ifish, as follows : Salmon, canned, X-1. Tuna, canned, X-1. Flax, and all articles containing flax, X-2. Flax fiber, X-2. Flour, as follows : Barley, X-1. Buckwheat, X-1. Corn, X-1. Dry paste. Rice, X-1. Rye, X-1. SaffO, X-1. Tapioca, X-1. Wheat, X-1. Flour, bone. Fodders. Formaldehyde and its derivatives, X-2. Formalin, X-2. P'ruit, dried, as follows : Apples, X-1. Apricots. X-1. Dates, X-1. Pigs, X-1. Peaches, X-1. Pears, X-1. Prunes, X-1. Raisins, X-1. Fuel oils. Furnaces, as follows: Corrugated furnaces for ships. Morison corrugated furnaces. -rnnr^RADE board. 403 G. * Gardoi »ccf1. X-1. (Individual li- censes not required to Canada and Newfoundland for 50 pounds and under. ) Gas oil. Gasoline. Gauze, hospital and medical. Glacial acetic acid, X-2. Glucose, X-1. Glycerine, X-2. Gold, as follows: Dental, X-2a Manufactured, and articles con- taining gold, X-29. Grain alcohol, X-2. Grains, as follows : Barley, X-1. Brewers'. Buckwheat, X-1. Corn, X-1. Halt, X-1. Oats. X-1. Rice, X-1. Rye, X-1. Wheat, X-1. Greases, as follows : Axle and other mineral-oil greases. Degras. Moellon degras. Grits, corn, X-1. Ground bone. Guano. Guayule. Gum lac, X-2. Gum opium and its products. Gutta-joolatong. Gutta-percha. Gutta-slak. H. Hair, as follows : Alpaca, manufactures of, X-5. Alpaca, raw, X-13. Camel's, manufactures of, X-5. Camel's raw, X-13. Cashmere, manufactures of, X-5. Cashmere, raw, X-13. Mohair, manufactures of, X-5. Mohair, raw, X-13. And all similar hairs • and their manufactures, wastes, by-prod- ucts, rags, and clips of all the above, X-13. Hog bristles — Manufactures of. Unmanufactured. Human, manufactures of. Human, raw. Press cloths, made of human hair and all animal hairs or of jute, X-5. Hams, X-1. Hand-lantern oil. Hemp, X-2. Hemp fiber, X-2. Heroin and its salts. Hexamethylenetetramine. Hexamine. Hides, X-3. Hog bristles, as follows : Manufactures of. Unmanufactured. Hogs, X-1. Hominy, corn, X-1. Honey. *Horses. (Individual licenses not re- quired to Canada and Newfound- land.) Hospital gauze. Human hair, as follows : Manufactures of. Raw. Hydrate of soda, X-2. Hydroxide of soda, X-2. Indian samp (corn), X-1. Ingots, as follows : *Aluminuni. X-2. *Copper, X-2. ( Individual licenses not required to Canada and Newfoundland.) *Lead, X-2. *Nickel. X-2. * Steel, X-2. Invert sugar sirup. Iodine. Ipecac and its derivatives, X-2. Iron and steel, as follows : *Billets, X-2. *Blooms, X-2. *Ferrosilicon, X-2. *Ingots, X-2. *Pig iron, X-2. *Plates (all classes, i of an inch thick and heavier and wider than G inches, or over 6 inches in diameter), X-2. *Rails, over 50 pounds per yard, X-2. * Scrap, X-2. ♦Shapes, 3 inches or larger (plain, i. e. not punched or formed), in- cluding angles, channels, beams, tees, and zees, X-2. * Sheet bars, X-2. * Slabs, X-2. *Spiegeleisen (frequently de- scribed as " specular iron " and " mirror iron ") , X-2. Istle fiber, X-2. J. Jaborandi. Jalap. Jewelry. Journal waste containing wool, X-16. 404 BEPOBT OF THE WAR TRADE BOARD. .Tute and products manufactured there- from (Including cloth bags, gunnies, twine, etc.), X-2. Jute fiber, X-2. K. Kapok fiber, X-2. Kerosene oil. Ketone, as follows : Dimethyl, X-2. Ethylmethyl, X-2. Methvlethyl, X-2. Lac and all varieties thereof, X-2. Lacquers. Lantern oil. Lard, X-1. Neutral, X-1. liard compound, X-1. Lard substitutes, X-1. Lead, as follows : ♦Ingots, X-2. *Plg, X-2. Lead, arsenate of, X-2. Leather, as follows : Belting leather, X-3. Sheep leather. Shoe upper leather — Goat and kid. Sheep and lamb. Sole leather (including cut stock), X-3. Strap leather. Linen and articles manufactured therefrom, X-2. Linseed meal, X-1. Linseed oil. Llnters, cotton. Logs. ( See Wood. ) Lubricating oils. Lumber, as follows (see also Wood) : Ash wood, X-2. Birch wood, X-2. Chestnut wood, X-2. Fir timber, X-2. Mahogany wood, X-2. Oak wood, X-2. Plywood and veneer of all kinds. Quebracho wood, X-2. Spruce wood. Walnut wood, X-2. Yellow pine measuring 12 inches by 12 inches and larger size, or 25 feet long and longer, X-2. M. Macaroni, X-1. Maguey fiber, X-2. Mahogany shooks, X-2. Mahogany staves, X-2. Mahogany wood, X-2. (See Wood.) Maize (corn), X-1. Malt X-1. Malt sprouts. Manila fiber, X-2. Manure, as follows : Cattle. Guano. Potato. Sheep. Maple sirup, X-1. Meal, as follows : Barley, X-1. Corn, X-1. Cottonseed, X-1. Linseed, X-1. Oil-cake, X-1. Peanut, X-1. Rye, X-1. Soya-bean,.X-l. Meal, bone. Meat and meat products, as follows : Beef products, canned, preserved, and fresh, X-1. Bacon, X-1. Fat backs, X-1. Hams, X-1. Lard, X-1. (See Lard.) Pork and pork products, X-1. Tallow. Medical gauze. Medicines, patent or otherwise, if con- taining any ingredient on Export Conservation List other than alcohol. Mercury and its compounds, X-2. Metadinitrobenzol, X-2. Dinitrobenzol. Metallic potassium, X-2. Metallic tin, X^. Metallic tin pipe, X-4. Methyl alcohol, X-2. Methylated spirits, X-2. Methylethyl ketone, X-2. Mica. Mica splittings. Milk, as follows : Condensed, X-1. Evaporated, X-1. Powdered, X-1. Preserved (all kinds), X-1. Mineral grease. Mineral oils. Mlrbane, oil of. *Mirror iron (frequently described as " specular iron " and " splegelel- sen"), X-2. Mixed fertilizers. Moellon degras. Mohair, as follows : Clips, X-13. Manufactures of, X-5. Rags, X-13. Raw, X-13. Waste, X-13. Molasses, X-1. Molasses alcohol, X-2. Molybdenite, X-2. Molybdenum and chemical compounds thereof, X-2. Monazite, X-2. KBPOET OF THE WAS. TRADE BOARD. 405 Monochlorbenzol, X-2. (Chlorbenzol.) Morlson corrugated furnaces. Morphine and derivatives, X-2. Morphine salts, X-2. *Moving-picture and other photo- graphic lilms, unexposed, exposed but undeveloped, and exposed and developed. (Individual licenses not required to Canada and Newfound- land for exposed and developed films. ) * JIules. (Individual licenses not re- quired to Canada and Newfound- land.) N. Naphtha. Naphthalene and its derivatives. Naphthalene balls. Neutral lard, X-1. Newspapers, old. News print paper. Nickel, as follows : *Anodes, X-2. *Ingots, X-2. *Shot, X-2. Nickel, chemical compounds thereof. Nitrates, all, X-2. Nitric acid and its salts, X-2. Nltro compounds, all, X-2. Noils, as follows : Silk. Worsted, X-13. Nonalcoholic beverages containing sugar. Noodles, X-1. Novocain. O. Oak barrel heads, X-2. Oak shocks, X-2. Oak staves, X-2. Oak wood, X-2. ( See Wood. ) Oakum, X-2. Oatmeal, X-1. Oats, X-1 : Products of, X-1. Rolled, X-1. Oil cake, X-1. Oil-cake meal, X-1. Oil of cloves, X-2. Oil of santalwood, X-2. Oils, as follows : Aniline, X-2. Animal, X-1. Axle and other mineral-oil greases. Benzine (from petroleum). Bitter almond, artificial oil of. Castor, X-2. Castor, sulphonated, X-2. Clove, X-2. Coconut, X-1. Cod-liver. Copra, X-1. Oils — Continued. Corn, X-1. Cottonseed, X-1. Crude. Cylinder. Engine. Fuel. Gas. Gasoline. Hand-lantern. Kerosene. Lantern. Linseed. Lubricating. Mineral. Mirbane, oil of. Naphtha. Olive, X-1. Palm, X-1. Paraffin. Peanut, X-1. Petroleum. Rapeseed, X-1. Red oil. Soya-bean, X-1. Turkey-red oil. Oleomargarine, X-1. Olive oil, X-1. Opium gum and its products, X-2. Orthonitrotoluol, X-2. (Nitrotoluol.) ( Paranitrotoluol. ) Orthotoluidine, X-2. ( Paratoluidine. ) (Toluidine.) Oxide of antimony, X-2. Palm oil, X-1. Paper, as follows : Book. Newspapers, old. News print. Poster. Print. Paper makers' felts, X-5. Paraamldophenol. (Amidophenol.) Paraffin. Paraffin oils. Paraffin wax. Paranitraniline, X-2. Paranltroacetanilide, X-2. (Nitroacetanilide.) Paranitrochlorbenzol, X-2. ( Nitrochlorbenzol. ) Paranitrophenol, X-2. (Nitrophenol.) Paranitrotoluol, X-2. (Nitrotoluol.) (Orthonitrotoluol.) Paratoluidine, X-2. (Toluidine.) (Orthotoluidine.) Paste, soup, X-1. Paste, tomato, X-1. 406 REPORT OF THE WAR TRADE BOARD. Patent medicines, If containing any ingredient on Export Conservation List otlier than alcobol. Peaches, dried, X-1. Peanut butter, X-1. Peanut meal, X-1. Peanut oil, X-1. Pearls. Pears, dried, X-1. Peas, X-1: Canned, X-1. *Seed, X-1. (Individual licenses not required to Canada and Newfoundland for 50 pounds and under.) Percussion caps, X-2. Petroleum. Phenol (carbolic acid) and its deriva- tives, X-28. Phenolphthalein, X-2. Phosphate, as follows : Acid, X-2. Double acid. Phosphides. Phosphoric acid, X-2. Phosphorus sesquisulphide, X-2. Phosphorus, X-2 : Amorphous, X-2. Yellow, X-2. *Photographic films, including moving- picture films, unexposed, exposed but undeveloped, and exposed and devel- oped. (Individual licenses not re- quired to Canada and Newfoundland for exposed and developed films. ) Piassaba fiber, X-2. Picric acid, X-2. Pigeons, carrier. *Pig copper, X-2. *Plg iron, X-2. *Pig lead, X-2. Pig tin, X^. Pine, yellow, measuring 12 inches by 12 inches and larger size, or 25 feet long and longer, X-2. Pins, worsted, X-2. Pistols, X-2. Planers. Plate, as follows : Terne, X^. Tin, X-4. Plates, as follows : *A11 classes, iron and steel, i of an inch thick and heavier and wider than 6 inches, or over 6 inches in diameter. Plywood and veneer of all kinds. Pork, X-1. Pork products, X-1. Postage stamps, canceled and uncan- celed. Poster paper. Potash and its compounds, X-2. Potassium and its compounds, X-2. Potassium, metallic, X-2. Potato manure. Powder, cocoa. Powdered milk, X-1. Precious stones of all kinds. Preserved beef products, X-1. Preserved milk of all kinds, X-1. Press cloths, made of human hair and all animal hairs or of jute, X-5. Print paper. Procaine, X-2. • Proprietary compounds, if containing any ingredient on Export Conserva- tion List other than alcohol. Prunes, dried, X-1. Pulled wool, X-13. Pulp wood, X-2. Q- Quebracho extract, X-2. Quebracho wood, X-2. (See Wood.) Quicksilver, X-2. Quinine and its compounds, X-2. Quinine salts, X-2. B, Radium, as follows : Luminous compounds, X-2. Ores, X-2. Salts, X-2. Rags, as follows : Alpaca, X-13. Camel's hair, X-13. Cashmere, X-13. Mohair, X-13. Woolen, X-13. AA'orsted, X-13. Of all similar hairs, X-13. *Rails, over 50 pounds per yard, X-2. Raisins, X-1. Ramie fiber, X-2. Rapeseed oil, X-1. Raw silk. Reclaimed rubber. Red oil. Reflectors, searchlight, X-2. Revenue stamps, canceled and uncan- celed. Revolvers, X-2. Rice, X-1. Rice flour, X-1. Rice-root fiber, X-2. Rifles, X-2. Rolled oats, X-1. Root, senega. Rubber, as follows : Balata. Crude. Guayule. Gutta-joolatong. Gutta-percha. Gutta-siak. Reclaimed. Scrap. Rubberized silk, suitable for use in the manufacture of aircraft. Rye, X-1. Rye flour, X-1. Rye meal, X-1. REPORT OF THE WAR TRADE BOARD. 407 Sabadilla, X-2. Saccharin, X-2. Sago, X-1. Sago flour, X-1. Sal ammoniac, X-2. Salicylic acid, X-2. Salmon, canned, X-1. Saltpeter, X-2. Salts, as follows : Ammonia, X-2. Aniline, X-2. Antimony, X-2. Benzoic acid, X-2. Chromic acid. Cocaine, X-2. Codeine, X-2. Heroin. Jlorphine. Nitric acid, X-2. Quinine, X-2. Radium, X-2. Sulphuric acid, X-2. Tolidin, X-2. Samp, Indian ( corn ) , X-1. Schappe (silk). Scoured wool, X-13. * Scrap iron and steel, X-2. Scrap rubber. Scrap tin, X-4. Second-hand clothing (woolen), X-15. Seeds, as follows : Cotton, X-1. * Garden, X-1. (Individual li- censes not required to Canada and Newfoundland for 50 pounds and under.) *Peas, X-1. (Individual licenses not required to Canada and Newfoundland for 50 pounds and under.) Sugar-beet. ^■Vegetable, X-1. (Individual U- censes not required to Canada and Newfoundland for 50 pounds and under.) Seedlac, X-2. Senega root. Sesqulsulphlde, phosphorus, X-2. *Shapes, 3 inches and larger, iron and steel (plain, i. e., not punched or formed), including angles, channels, beams, tees, and zees, X-26. Sheep, X-1. Sheep leather. Sheep manure. "Sheet bars, steel, X-2. Shellac, X-2. Shells, shotgun, X-2. Shin bones. Shoe upper leather, as follows : Goat and kid. Sheep and lamb. Shooks (oak, birch, mahogany, wal- nut), X-2. Shot (in bulk), X-2. Shotgun shells, X-2. Shotguns, X-2. Silk, as follows : Artificial, unmanufactured. Cartridge cloth, suitable for use as powder bags. Noils. Raw. Rubberized, suitable for use in the manufacture of aircraft. Schappe. Spun. Waste. Silver nitrate. Sirup, as follows : Beet, X-1. Cane, X-1. Corn, X-1. Invert sugar. Maple, X-1. Sisal and products manufactured there- from, X-2. Skins (except fur). *Slabs, steel, X-2. Soda ash, X-2. Soda, compounds of. (See Sodium compounds. ) Sodium compounds, as follows. Arsenate, X-2. Arsenite, X-2. Benzoate, X-2. Bichromate, X-2. Bromide, X-2. Carbonate, X-2. Chlorate, X-2. Cyanide, X-2. Hydrate, X-2. Hydroxide, X-2. Nitrate, X-2. Sole leather (including cut stock) , X-3. Soup paste, X-1. Soya-bean meal, X-1. Soya-bean oil, X-1. Soya beans. Spaghetti, X-1. Spices. * Spiegeleisen (frequently described as " specular iron " and " mirror iron"), X-26. (See Ferroalloys.) Spirits, methylated, X-2. Splittings, mica. Sprouts, malt. Spruce wood. (See Wood.) Spun silk. Stamps, canceled and uncanceled, as follows : Postage. Revenue. Stamps of similar character. Starch, corn, X-1. Staves (oak, ash, birch, mahogany, walnut), X-2. Stearin, X-1. Steel. (See Iron and steel.) Stones, precious, of all kinds. 408 EEPORT OF THE WAR TRADE BOARD. Sugar, X-1. Sugar-beet seed. Sulphates, all, X-2. Sulphonated castor oil, X-2. Sulphur, X-2. Sulphuric acid and its salts, X-2. Sumac extracts, X-2. Sunn fiber, X-2. Superphosphate, X-2. T. Tallow. Tanipico fiber, X-2. Tankage. Tanning extracts, all, X-2. Tapioca, X-1. Tapioca flour, X-1. Tea. Terne plate, X-4. Tetrachloride, carbon. Tetrachlormethane. Tetranitroaniline. Tetranitromethylaniline, X-2. Tetranitroethylaniline, X-2. Thigh bones. Timber. (See Wood.) Tin, as follows : Block, X-4. Empty containers, X-4. Metallic, X-4. Metallic pipe, X-4. Ore, X-4. Pig, X-4. Plate, X-4. Scrap, X-4. Tolidin and its salts, X-2. Toluene and its derivatives, X-2. Toluidine, X-2. (Orthotoluidine.) (Para toluidine.) Toluol and its derivatives, X-2. Tomato paste, X-1. Tomatoes, canned, X-1. Tools, as follows : ♦Copper, X-2. ( Individual licenses not required to Canada and Newfoundland. ) Tops, worsted, X-13. Trinitrophenol, X-2. Trinitrotoluol, X-2. Tula, fiber, X-2. Tuna fish, canned, X-1. Turkey-red oil. Twine, binder, X-2. V. Vegetable fibers, except cotton (in- cludes coco fiber, flax, jute, kapok, ■ hemp, maguey, piassaba, ramie, sisal, istle, Tampico, Manila, sunn, rice root, tula, and the like), X-2. Vegetable fibers, products manufac- factured therefrom, except cotton, hemp, and Manila, X-2. Vegetables. (See Beans, Corn, Peas, and Tomatoes ; also Seeds. ) *Vegetahle seed, X-1. (Individual licenses not required to Canada and Newfoundland for 50 pounds and under. ) Velvet beans, X-1. Veneef and plywood of all kinds. Vermicelli, X-1. W. Walnut barrel heads, X-2. Walnut shocks, X-2. Walnut wood, X-2. (See Wood.) Waste, as follows: Alpaca, X-13. Camel's hair, X-13. Cashmere, X-13. Journal, containing wool, X-16. Mohair, X-13. Woolen, X-13. Worsted, X-13. Of all similar hairs, X-13. Waste, silk. Wax, paraffin. Wheat, X-1. Wheat, products of, X-1 : Biscuits, X-1. Bread, X-1. Cereals (wheat), X-1. Crackers, X-1. Farina, X-1. Flour, X-1. Macaroni, X-1. Noodles, X-1. Soup paste, X-1. Spaghetti, X-1. Vermicelli, X-1. Wood,^ as follows : Ash, X-2. Birch, X-2. Chestnut, X-2. Fir timber, X-2. 1 Under the heading of Wood (ABh, Birch, Chestnut, Fir timber. Mahogany, Oak, Quebracho, Spruce, and Walnut) the following are included : Logs: Timber, round, hewn, sawed, sided, or squared. Lumber: Manufactured in all dimension sizes for commercial uses, including woods suitable for gunstocks, airplane propeller blades, veneers for airplane and hydroplane bodies, airplane and hydroplane frames, ordnance construction ; walnut, mahogany, or birch wood cut for parquet flooring. Partly manufactured articles in an unfinished shape that are to be completed into R finished article at the point of destination when made from the specified woods, such as K/D desks and barrels, furniture stock, parquet flooring, cooperage, etc. Individual licenses are not required for completely manufactured articles made of woods specified above, such as desks, furniture, barrels, casks, etc., when exported to Canada and Newfoundland. To all other countries Individual licenses for such articles are required. UJiFOKT CF THE WAR TRADE BOARD. 409 Wood — Continued. Mahogany, X-2. Oak, X-2. Quebracho, X-2. Spruce. Veneer and plywood of all kinds. Walnut, X-2. Yellow pine, measuring 12 inches by 12 inches and larger size, or 25 feet long and longer, X-2. Wood alcohol, X-2. Wood ashes, X-2. Wood pulp, X-2. Wool, as follows: In the grease, X-13. Manufactures of, X-5. Pulled, X-13. Scoured, X-13. Woolen by-products, X-13. Woolen clips, X-13. Woolen clothing (second-hand), X-15. Woolen rags. X-13. Woolen waste, X-13. Woolen yarns, X-13. Worsted, as follows : By-products, X-13. Clips, X-13. Manufactures of, X-5. Noils, X-13. Rags, X-13. Tops, X-13. AVaste, X-13. Yarns, X-13. Worsted pins, X-2. Yarns, as follows: Woolen, X-13. Worsted, X-13. Yellow pine, measuring 12 inches by 12 inches and larger size, or 25 feet long and longer, X-2. Yellow phosphorus, X-2. EXHIBIT VIII. ALLOCATION OF CAUSTIC SODA EXPORTS CAUSTIC SODA QUESTIONNAIRE. To the Wab Trade Boaed, Bureau of Exports, Washington, D. G. Sirs : The undersigned hereby represent and declare that the undersigned, under their own name, exported from the United States and its possessions to the countries specified on the list hereunto attached, the quantities of caustic soda (sodium hydroxide), set opposite the respective names of said countries during the 12 months' period, July 1, 1916, to June 80, 1917, inclusive, and that said amounts are correct and In conformity with their books and records. This statement Includes no shipment of caustic soda manufactured or owned by the undersigned which was exported on bills of lading on which any other commission house, forwarding agent, or exporter appears as shipper. Name By... As Address Dated INSTRUCTIONS AS TO EXECUTION OF FORMS REFERRED TO IN BUKEAU OF EXPORTS LETTER OF MARCH 30, 1918, RELATING TO CAUSTIC SODA. 1. In this report no information is desired concerning commodities other than caustic soda shipped to the countries specified on the list. 2. The quantity must be specified in the second column. 3. The unit of measure is pounds, not dollars or other unit of value, nor boxes, cases, drums, or packages. 4. The cover sheet should be fastened to the statistical sheets, should be signed by the individual, or, in the case of a copartnership, by a member thereof; or In the case of a corporation, by an officer who is authorized to sign on behalf of the corporation. 5. One copy should be forwarded to the Bureau of Exports, 1435 K Street, Washington, D. O. The other copy is for your convenience in keeping a record. 6. Answers must be written legibly, or typewritten, if possible. These blank forms are sent to you conveniently arranged for this purpose. 7. The name of the exporter should be typewritten or legibly written at the bottom of each sheet. Country. Quantity, Unit ot measure: Pounds. Reserve for offi- cial use. Canada, including Nova Scotia Newfoxmdland, including Labrador St. Pierre and Miquelon Mexico , Bermuda Cuba, including Isle of Pines British West Indies, including Barbados, Jamaica, Trinidad, Tobago, Ba- hamas (i. e., Andros, Abaco, Grand Bahama, New Providence, Harbor Island, Great Inagua, Eleuthera, and Long Island) : Turk's Island, Cai- cos, Cayman Islands, Morant Cays, Pedro Cays, Leeward Islands (i. e., Antigua, Barbuda, iiedonda, St. Kitts, Nevis, Anguilla, Dominica, Montserrat, Virgin Islands— Tortola, Anegada, and Virgia Gorda) ; Wind- ward Islands (i. e., St. Lucia, St. Vincent, Grenadines, and Grenada).. French West Indies, including Martinique, Gaudeloiipe, IJesirade, French St. Martin, Marie Galante, St. Bartholomew, and Les Saintes 410 REPORT OF THE WAR TRADE BOARD. 411 Country. Quantity. Unit of measure: Pounds. Reserve for offi- cial use. Dutch West Indies, including Curagao, Dutch St. Martin, St. Eustakius, Saba, Aruba, and Buen Ayre Dominican Republic (Santo "Domingo) , Haiti. Guatemala Honduras, including Bay Islands (i. British Honduras Salvador . , Roatan, Utila, and Bonaca) . Nicaragua Costa Rica Panama (excluding Canal Zone) . Brazil. Argentina, including Eastern Tierra del Fuego. , Bolivia Chile, including Western Tierra del Puego Colombia British Guiana Dutch Guiana French Guiana Ecuador, including Galapagos Islands Paraguay Peru m- Uruguay . Venezuela Falkland Islands Japan, including Korea, Formosa, Kurile Islands, and .Japanese Saghalien China, including Manchuria, Mongolia, East Turkestan, Tibet, and Island of Hainan British China, including Hong Kong French China Japanese China, including Port Arthur and Dairen Former German China ( Kiao-Chau) French Lido-China, including Tong-ICing, Annam, Laos, Cambodia, and Cochin China Siam. Malay Peninsula, including Malacca, Selangor, Perak, Singapore, Penang, Pahang, Kelantan, Trengganu, Kedah, Johore, Negri-Sembilan British India, including Eastern Bengal, Assam Burma, Laccadive Islands, Maldive Islands, Andaman Islands, Nicobar Islands Frenoh India, including C;handemagor, Karikal, Fondicherry, Yanaon, andilahe - Portuguese India, including Damao, Diu, and Goa Dutch East Indies, including Dutch Borneo, and Dutch New Guinea.... British East Indies, including British North Borneo, Sarawak, Brunei, Labuan, Christmas Island, Keeling Islands, and British New Gumea.. Portuguese East Indies, including Macao Islands and Northeast Timor. . Ceylon . British'Oceania, including Fiji Islands, Gilbert Islands, Solomon Group, Tonga, etc ., .ri ^^^y i' French Oceania, including New Caledonia, Marquesas. Society Islands, etc, Former German Oceania, Kaiser Wilhelm Land (northeast New Gumea), Marianas, Caroline and Pelew Islands, Bismarck Archipelago Australia, including Tasmania New Zealand Name of exporter . EXHIBIT IX. APPROPRIATIONS AND EXPENDITURES. Section I. ANALYSIS or APPKOPRIATIONS TO THE WAR TRADE BOARD DURING THE IISCAL YEARS 1918 AND 1919. The accompanying statement of funds available for the operation of the War Trade Board for the fiscal year ending June 30, 1918, shows that the Board secured its funds in 10 different allotments. Six of these allotments were made from the National Security and Defense Fund, two from the expenses for enforcing the trading with the enemy act, and one a specific allotment for salaries and expenses of the War Trade Board. For the fiscal year beginning July 1, 1918, Congress made^ specific appro- priation of $3,500,000 for salaries and expenses for the operation of the War Trade Board, and this constituted the bulk of the operating funds. Of thi& amount an item of $50,000 was transferred to the Treasury and credited to the appropriation " Regulating commerce, etc., Panama Canal, 1919." One allot- ment of $100,000 made from the National Security and Defense Fund was used solely for defraying the expenses of the foreign agents of the War Trade Board. When the price section and the industrial conditions section of the War Industries Board were transferred to the War Trade Board in January, 1919, the sum of $48,700 was transferred to the War Trade Board from the appropriation " Salaries and expenses, War Industries Board, 1919." It will be noted also that a specific allotment was made of $5,000,000 for use as a revolving fund in connection with an investigation into and the im- provement of the economic condition of Russia. The plan of handling this fund was later changed and the entire fund was returned to the Treasury, so that the sole operating fund of the Board for the fiscal year beginning July 1, 1918, consisted of items aggregating $3,600,000. Section 11(a). Statement of Appropriations Fiscal Year 1918 — August 27, 1917, to June 30, 1918. Appropriation. Allotments, ^rational Security and Defense, Exports Administrative Board : 1. Aug. 27 $250,000 National Security and Defense, Executive, War Trade Board : 2. Nov. 15 $250,000 3.' Jan. 15 600, 000 850, 000 Expenses, trading with enemy act, Executive, 1918, War Trade Board : 4. Oct. 31 $25,000 5. Feb. 3 155, 000 180, 000 National Security and Defense, Executive, War Trade Board, reimbursable : 6.' Mar. 26, 1918 200,000 Salaries and Expenses, War Trade Board, 1918 : 7. Apr. 5, 1918 800,000 1 Under date of Apr. 17, 1918, $15,000 from appropriation No. 3 and $85,000 from appropriation No. 6 were transferred to the reimburseable account, for use of foreign representatives. 412 REPORT OF THE WAR TRADE BOARD. 413 National Security and Defense, Executive, War Trade Board, erecting temporary building, Washington, D. C. : 8. Jan. 25, 1918 750,000 National Security and Defense, Executive, War Trade Board • 9. Jan. 25, 1918 5,500 National Security and Defense, Executive, War Trade Board : 10. June 7, 1918 300, 000 Total ^ 3, 335, 500 Section 11(b). Ptscai Yeak 1919— July 1, 1918, to June 30, 1919. Appropriation. .4110111161118. Salaries and expenses. War Trade Board, 1919 : July 5, 1918 $3,500,000 War Industries Board : Jan. 13, 1919 48,700 National Security and Defense, War Trade Board, 1919, foreign agents : July 23, 1918 100,000 Economic condition of Russia : Oct. 24, 1918 5,000,000 Total, 1919 8, 648, 700 Salaries and expenses, War Trade Board, 1919, transferred to Treas- ury for regulating commerce, etc., Panama Canal, Executive or- der: Nov. 27, 1918 $50,000 Economic condition of Russia, transferred to Treasury — 4,993, 500 5, 043, 500 Balance 3, 605, 200 414 REPORT OF THE WAR TRADE BOARD. cq E-i -r ID to a. "3 1 11 s to Mimeo- graph. News- papers, periodi- cals, books. Telephone, tclccraph, cables. Building repairs. 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Section Ill(d). Summary of expenditures of the ^yar Trade Board {Washington office only), classified by bureaus. Bureaus. Calendar year 1918. Amount. Per cent of total. Fiscal year 1919. Amount. Per cent of total. Administration Branches and Customs. . . Contraband Committee. . Enemy Trade Executive Executive Special Exports Poreign Agents Imports Research and Statistics. . . Transportation War Trade Intelligence... War Industries I>i^aEion . 8497, 255 72,810 35, 395 125,363 266, 236 17,013 830, 132 53,796 221,017 1 507, 228 115,859 635, 194 14.7 2.2 1.0 3.7 7.9 .5 24.6 1.6 6.5 115.0 3.4 18.8 $304, 410 73,083 17, 899 32,027 317, 174 26, .505 4S9, 116 25, 085 236,398 500, 204 94, 689 532, 365 47, 772 Total.. 3, 377, 2 2,696,728 11.3 2.7 .7 1.2 11.8 1.0 18.1 18.6 3.5 19.7 1.8 100.0 1 Research Tabulation and Statistics . $250,135; 7.4 per cent. 257,093; 7.6 per cent. Section Ill(e). Summary of expenditures of the War Trade Board (Washington and branch offices), classified by items. Items. Fiscal year 1918; Aug. 27, 1917-Juiie 30, 1918. Amount. Per cent of total expendi- tures. Fiscal year 1919: July 1, 1918-June 30, 1919. Amount. Per cent of total expendi- tures. Total Aug. 27, 1917- June 30, 1919. Amount. Per cent of total expendi- tures. Pay roll Travel expenses Equipment Stationery and supplies Printing and binding Rent, heat, light, water, power, etc Building repairs Telephone, telegraph, cables Newspapers, periodicals, books Mimeograph Miscellaneous Total 81, 456, 276 47, 661 248, 097 132, 240 48, 437 111,866 45,148 250, 783 2,063 6,758 20, 848 01.4 2.0 10.5 5.6 2.0 4.7 1.9 10.6 .1 .3 82, 375, 462 32, 010 69,019 98,072 04, 100 38,049 21,113 345, 643 200 36, 653 2,500 77.1 1.0 2.2 3.2 2.1 1.2 .7 11.2 83: 831, 738 79,671 317,116 230,312 112,637 149,915 66, 261 596, 426 2,263 43,411 23, 348 70.3 1.5 5.8 4.2 2.1 2.7 1.2 10.9 .04 .8 .4 2,370,176 100.0 3, 082, 820 100.0 5,452,997 100.0 EEPOET OF THE WAK TRADE BOARD. 419 SECTION E? EXPENDITURES OF THE WAR TRADE BOARD rOR 1918 WITH DISTRIBUTION BY CLASS OF EXPENDITURE MISCELLANEOUS (INCLUDING NEWSPAPERS 8, PERIODICALS) S2I 004.22 MIMEOGRAPH . . ft25 56^.96 TRAVEL . . .$56',977.89 BUILDING AND REPAIR ....... .«63,473.20 PRINTING AND BIWDINS. #86,89524 RENT LIGHT HEAT ETC: #97 549-78 STATIONERY AND SUPPLIES # | 7l]a62^9 EQUIPMEMT ..* 207, 19812 TELEPHONE AND TELEGRAPH. :$ 390,453.25 PAY ROLL , $ 2,740 393^5 TOTAL. .■ ;. . * 3.86 1 ; 37061 420 REPORT or THE WAR TRADE BOARD. UJ u b. u. o 10 X I ^^ 1- 2 z o < X CO d ^ ■z DC < <, O CQ tij 2 -3 o < Ui o w UJ Q H o 111 D < a: U. h It UJ o d: ifi in < £ UJ > lu 1- u. 0. D tJ »- la n X z III o It a. X UI _l < »- o I- u z 3 \ \ X 1 i EC / < 0^ < f Z 1 Ul / V < ■3 i 1 y / / fe: \ \ 5 1 J c 3 > / s s^ N V ^ s < I \ .5 \ \ < -3 V \ - \ a 1 8 j \ <«:o \ tr o o o o jS! JO + 10 tvl X- 0- — o EXHIBIT X. PERSONNEL OF THE WAR TRADE BOARD. Section I. Number of employees in the War Trade Board, hy bureaus and branch offices. [By pay-roll periods, 1917.] July August Septem- ber Octo- ber Novem- ber Decem- ber 15 31 15 31 15 30 15 31 15 30 15 31 Total 68 167 177 301 385 500 638 716 987 1,171 1,368 1,526 Branch offices 16 286 46 339 65 435 77 561 82 634 88 899 115 1,056 134 1,234 150 1,376 68 167 177 20 216 22 70 21 35 261 38 84 52 12 258 67 27 65 35- 321 37 84 84 15 281 64 33 102 35 351 36 90 87 22 377 80 47 109 AriTniTiisfratifm 381 Tabulation and Statistics 95 Wf^r Trnrlfi TntpUigPTiPfi 89 217 33 14 21 Tmpnrts 1 88 Enemy Trade. . 114 [By pay-roll periods, Jan. to June, 1918.] January Febru- ary March April May June 1 15 31 15 28 15 31 15 30 15 2,292 425 1,867 39 29 392 25 38 101 214 276 9 514 147 52 31 31 2,273 407 1,866 45 28 379 30 36 98 215 295 8 507 146 60 29 15 2,276 30 Total 1,526 1,651 1,731 1,663 1,637 1,847 1,948 2,170 2,266 2,315 Branch offices 150 1,376 173 1,478 48 196 1,63S 42 205 1,458 41 207 1,430 31 243 1,604 302 1,646 37 27 280 21 32 96 156 222 5O0 138 68 70 396 1,774 35 29 292 21 38 97 172 247 9 574 143 55 59 417 1,849 40 29 379 23 37 99 183 274 10 638 140 54 43 406 1,870 40 31 380 27 34 94 225 317 8 474 149 55 27 410 1 905 35 36 54 33 381 344 349 298 274 IS 38 67 115 161 17 481 97 52 79 284 20 36 78 146 187 15 540 137 55 71 363 30 RranchpR f^rir] fluptorris 32 Research 36 95 89 20 474 8S 44 114 51 111 110 23 524 95 52 120 60 115 139 23 540 96 53 119 63 116 153 21 524 96 53 93 82 Tabulation and Statistics W ar Trade Intelligence 236 377 8 Exports 468 150 Transportation 55- 27 ' Not classified by bureaus until Oct. 31. , „ . . » „ ■ n, ' Hgures given Include only the personnel of the bureau in Washington. The Foreign Agents ' m the field, although an integral part of the War Trade Board organization, were on the pay roll of the btato^ Department. On Nov. 11, 1918, they numbered 200. 421 422 EEPORT OF THE WAR TRADE BOARD. Section I — Continued. [By pay-roll periods, July to Dec. 1918.] .luly August Septem- ber October Novem- ber Decem- ber — 15 31 15 31 15 30 15 31 15 30 15 31 2,344 2,4/8 2,616 2,705 2,769 2,691 2,747 2,756 2,789 2,807 2,725 2 644 421 l,92.f 427 2,041 435 2,181 430 2,275 431 2,338 428 2,233 431 2,312 435 2,321 J 51 2,338 458 2,349 459 2,266 458 2,186 52 5? 66 65 66 61 67 15 31 395 43 36 200 291 442 13 .530 158 67 24 71 22 9 387 42 38 206 284 436 14 555 164 68 25 73 34 73 37 64 38 63 39 35 341 31 34 101 252 378 8 470 137 58 26 35 355 32 34 121 283 393 10 501 137 56 26 34 371 35 35 148 296 443 12 521 133 62 25 32 386 38 34 172 336 444 12 523 137 69 27 32 387 37 36 las 330 4.55 12 564 135 66 30 31 385 37 34 198 308 436 13 530 139 68 23 375 42 33 214 285 425 14 585 168 65 25 370 40 39 230 275 409 15 .599 172 66 24 361 41 38 225 271 393 15 581 160 64 15 366 40 35 214 262 383 17 536 1.53 62 16 [By pay-roll periods, 1919.] Total. Branch offices Washington (only) . Executive Executive Special Administration Division of Information Branches and Customs Research Tabulation and Statistics. . - War Trade Intelligence Foreign Agents ^ Exports Imports Transportation Enemy Trade War Industries Division -,.. January 1 15 31 56 30 348 34 37 185 231 353 14 298 119 2,120 373 1,724 56 24 339 36 35 175 223 339 19 336 108 48 1,965 327 1,638 52 14 303 36 31 170 188 312 13 263 88 47 8 113 February 246 1, 278 43 7 209 33 30 154 170 220 8 183 67 41 7 107 1,416 1,290 March 255 243 1,161 il,047 39 6 106 33 29 145 164 203 8 164 50 41 9 90 153 28 28 142 147 183 8 151 48 37 6 72 218 870 32 6 151 19 25 120 94 141 2 138 40 32 13 57 April 22 141 701 614 29 ! 29 6 i 5 123 '120 19 1 18 May 15 31 23 . 367 '368 301 June 1 25 25 4 5 107 107 15 15 10 10 47 46 5 4 21 211 3 3 73 72 13 14 18 20 9 1(1 17 17 1 See footnote on page 421. 2 War Industries Division was transferred from War Industries Board. 50.1919. xBoff — 2.70c — ^00 — \ , \ \ i 1 2_30o — \ \ \ \ \ \ \ \ ^ \ \ \ \ \ N. 1 \ \ V \ \ \ \ \ \ \ \ \ \ \ \ j \ \ \ \ \ \ \ \ \ \ V \ \ i 1 A 1 X A _~^ X / ' — r J" / d. ) ^ *1 ^^ ^K ,f / J ^ ^ ^ -^ '^ ^ "^ ^ ^ 4> ,V^ J* / -1919 J ONLY 103584—20. (To f^ REPORT OF THE WAE TRADE BOARD. 423 'a S O) s t^oi I— 1 CO Oi 1— 1 CO i> «3 r- o CO OJOOp r^ 1 3 O COCO W 00 1 (m" (n' § r-* '■ ^ : ; 'Z. to" w g : ^ : ^ ^ : CO ' • CO lO «^ i§ ■ M.-i^(Nr^ ' i-^ : ■* i-H i lO s« is -^ ,-1 lOMOl 00 CO"* CO COM S :-- s gjSS ^05 ^ tN O lO ! ,-i,-(co i|>.-i • ■ .-1 ' M — -* t- o^ ■ ; I""" ; CO CO C^ Mt Q t^ M -:f- ^ CO ■ Tf CS ^3»^ 3 M CO M "o - m^ ^CO <£i ■ >o ■C^O rJ 'cO ' r~ i-t>- COIM •- s «« ■^ ■ : o : :§ : ;.§j ; ■ +J O M '•V ■ :--9a : :^S2 : :fi :- . . C3 . .COS ;3 ■ 2^ 9 S ft ; +2 " ' an So §g § : : bO . . S^gt -^B S \ S S OC ^ ft , e) Construct ion and Repair Division. ""ui-ran, George D., chief of division. Bealor, I. X., ciirpenter. Bohrer, S. B., electrician. Cliristenson, John W., copyLst. Crotts, James H., carpenter. Dice. Robert McC., carpenter. Donnelly, W. F.. clerk. Francis, George W., electrician. Garner, George T., carpenter. Herfurth, Nicholas, carpenter. Irwin, Richard F., electrician. Lang, C. F., painter. Lawrence, Helen A., typist. LIU is, John F., typist. JlcArtor, John, carpenter. A\'alcott, Frank, assistant engineer. AUDITS AND ACCOUNTS DIVISION. Spaid. M. J., chief of division. Williams, H. A., assistant. Thompson, D. B., auditor. Carr, Evelyn, clerk. Churchill, Frances, clerk. Corde, McConneU C, addresso- graph operator. Oi-aney, Mary B., stenographer. For.swall, Ellen M., clerk. Houpt, Ella, clerk. Lenfesty, ilildred V., typist. MacWilliams, Helen JI.. typist. Morrison, Mildred, clerk. Stokes, Ida M., clerk. Stuckert, A. E. S., clerk. Wyman, Mabel A., clerk. Yerby, Elsie L., typist. APPOINTMENTS DIVISION. Gans, E. W., appointment officer. Steinecker, W. I., secretary. Bushby, William B., assistant. Wheat, Beulah H., assistant. Scully, Maude, assistant. McHugh, H., assistant. Baker, Kathryn, typist. Bowman, Beulah, stenographer. Breckenrldge, Linnie, stenog- rapher. Browne, Julie, clerk. Cross, Bertie M., stenographer. Donovan, Gertrude, stenographer. Evans, Lula M., stenographer. Fleming, Elizabeth, stenographer. Fraser, Catherine I., stenographer. Kaufmann, May G., stenographer. McCann, Margaret, clerk. McKittrlck, Hazel, clerk. .Moore, Doris, clerk. Stokes, Marjorle, typist. Waters, Linda, clerk. Winn, Delia, typist. DISBUKSING OFKICE. Omohundro, C. M., disbursing otficer. Asbury, L. G., assistant. Oopeland, Gertrude W., assistant. Mead, Autum H., stenographer. Riddle, Hattie L., typist. Strudley, Edna il., stenographer. INQUIRY AND RECEPTION DIVISION. Bell, Gordon Knox, chief of division. Baker, Mary D., assistant. Bokel, Dorothy, clerk. Craig, Elizabeth S., assistant. Drake, Louis L., as.sistant. .Tevons, T. S., assistant. Maury, Abbie-Lowe, clerk. Ogden, Louis M., assistant. Holland, Cornelius, messenger. Johnson, Robert, messenger. WELFARE DIVISION. Nadler, Florence, chie^ of division. Carman, Sallie B., assistant. Tucker, Emery S., assistant. Clark, Ethel P., nurse. Lyie, Nellie, nurse. Mason, Irene, stenographer. Steuart, Linda, clerk. Thomson, Elsie A., clerk. OFFICE SERVICE DIVISION. Carl, Herman F., assistant director. Smith, Homer J., assistant. Hando, Ruth, stenographer. (o) ^[hneoyrapJi and Multigraph. Howell, Gillie C, chief of section. Reading, Coulter S., assistant chief. Ballaguer, A., mimeograph opera- tor. Baker, H. F., mimeograph opera- tor. Bough, A., typist. Busey, Eva, multlgraph operator. Dellinger. Eliza A., graphotype operator. Driggers, Jennie B.. mimeograph operator. Essmann, Clemens J., multigraph operator. Fellnagel, Amanda C, typist. Howard, Anna T., mimeograph operator. Kincheloe, Myrtle, mimeograph operator. Lawrence, Richard R., mimeo- graph operator. Lovern, Zora, multigraph opei ator. 428 REPORT OF THE WAR TRADE BOARD. Preyer, Caroline S., typist. Ricker, Ruth M., graphotype oper- ator. Smith, Benjamin F., addresso- graph operator. Spears, Grover, photostat operator. Sturgeon, R. A., multigraph oper- ator. Temin, M., multigraph operator. Todd, Gertrude E., clerk. Todd, Helen A., clerk. Trumbo, Leola F., typist. Webster, M. R. D., mimeograph operator. Winter, Martha, typist. (6) Motor Section. Dickson, C, motorcycle operator. Jackson, Louis A., chauffeur. Lamar, M., motorcycle operator. McClure, F. D., chauffeur. Blitchell, C. H., chauffeur. Simpson, J. L., motorcycle oper- ator. Spriggs, Nelson, chauffeur. Walls, 0., motorcycle operator. Washington, Eugene, chauffeur. (c) Incoming and Outgoing Mail Sec- tion. Slkes, J. B., chief of outgoing mail. Towers, Lemuel, chief of incoming mail. Berkeley, Elmer S., chief of night force of outgoing mail. Risler, L. C, in charge of inter- office mail. Acton, Joseph E., delivering incom- ing mail. Bailey, Sumner P., clerk. Bonebrake, John S., clerk. Bryant, Joseph L., collector of out- going mail (night force). Bryson, C. E., clerk. Dorsey, Frank, clerk. Edwards, Jesse, assistant. Garrett, William E., clerk. Harmon, O. E., clerk. Harris, Mordecai U., Interoffice mail carrier. Haverstock, George M., clerk. McGlue, G. R., clerk. Moore, Sephyr A., clerk. Murray, Clarence L., clerk. Rembert, R. W., clerk. Ross, E. C, clerk. Sayles, H. B., delivering special mail (outside). Skinner, H. A., Interoffice mall car- rier. Thompson, Bessie C, clerk. Thompson, Rosier H., interoffice mail carrier. Tucker, Oscar R., clerk. (d) Messengers. Shackford, Moses A. C, in charge of messengers. Atkins, Clifton H. Alcorn, Raymond. Arrlngton, L. Banks, Winslow. Barnes, Terry. Beall, Wilmer. Booker, R. Bowman, Charles. Brown, B. Brown, E. Butler, 0. Butler, L. Cartwright, Charles. Chamberlain, A. Chism, Albert. Claflin, W. Cordove, Marcel. Coxen, Spencer. Daniels, R. Dawson, J. Gwathney, W. Hobbs, A. Holmes, Charles. Jackson, Clifton L. Johnson, William H. King, Charles. King, Glenn W. Lane, Samuel. McClure, William. Martin, Lawrence. Mitchell, Clarence. Moten, E. Neil, T. A. Pospisiel, Edward J. Quander, Charles. Saylor, E. E. Simmes, J. Skinner, Walter R. Suter, William A. Swann, E. A. Talbert, Milton. Thomas, L. Tignor, C. Van Norman, H. Wiggins, B. S. Williams, S. Wyand, Howard. WATCHMEN. Grupe, Albert, captain of the watch. Springer, R. M., captain of the watch. Sullivan, William J., captain of the watch. Austin, Martin G. Berger, Henry C. Brashears, J. T. Brodwater, Lloyd. Butler, Albert. Caywood, William E. Duehring, R. H. E. Freeman, William. ivjiijTUJSx va TMK WAR TRACK BOARD. 429 Gilhooly, Jas. T. Good, Jas. E. Gross, Samuel B. Harvey, William T. Howard, Thomas B. Humphrey, John W. Keefer, Alonzo. Knapp, Richard H. Lehman, Henry A. Love, Thomas S. Jlaghan, William H. Mesmer, P. F. Niedfeldt, Henry. O'Gorman, Patricia. Quackenbush, S. L. Rocca, Daniel 0. Rothwell, Daniel. Siebert, Frank, jr. Small, Joseph Edveard. Smoot, William C. Soter, George F. Story, Eugene R. Swan, William W. Tucker, Thomas F. Tyler, William J. Wilkins, Edward S. CHABWOMEN. Actor, Louise. Allen, Laura. Bell, Anna. Beverly, Gertrude. Blake, Adele. Blanks, Susan. Bookman, Emma. Boyd, Lillian V. Brown, Ella. Brown, Martha. Bush, Anna May. Craig, Clara. Diggs, Gertrude. Dixon, Martha. Dodson, Mamie F. Doleman, Lizzie M. Ferry, Betty. Ford, Lucy. Freeman, Mattie. Green, Amanda. Green, Emma. Greene, Annie. Grimes, Ella. Gussam, Annie. Guthridge, Fannie B. Hardin, Margaret. Harris, Caroline. Hemes, Ethel. Holmes, Posha. Jackson, Frances. Jackson, Katie E. .Tohnson, Maud. Jones, Alice. Jones, Maud. Lee, Hattie P. Lee, Laura B. Lee, Minnie. Love, Mary E. Marshall, Mary. Marks, Lucinda. Mavritte, Addle. Milburn, Alice. Miller, Carrie H. Moore, Lola L. Morris, Cora P. Morton, Evelyn. Morton, Isabelle. Nelson, Mary. Pryor, Mary E. Pryor, Mary M. Ravnall, Elizabeth. Sales, Lucy. Styles, Sarah. Thornton, Augusta F. Tyler, Elizabeth. Ward, Cora. Warden, Adline. AVashington, Emma. White, Agnes. Williams, Bertie. Young, Alice. UNSKILLED LABOEEES. Bacon, Milton. Ball, James A. Baskerville, J. S. Baylor, James H. Blackson, George R. Broadus, John H. Brown, John. Byrd, Clifton. Carrick, Lawrence. Crawley, Robert Lee. Cross, P. D. Douglas, Curtis. Dublin, Herbert E. Franklin, Reuben. Giles, John. Gross, Hobart. Harris, Robert. Holiday, Lewis. Holliday, Russell. Holt, Samuel. Honesty, Charles. Hopper, Jacob. Humphrey, Jackson. JofEney, Jackson H. Johnson, Charles. Johnson, Joshua A. Johnson, Raymond J. Jones, Lawrence E. Jones, Paul. Jordan, George W. Lewis, Jerrie J. Mills, John L. Pierce, Hubert H. Randall, Robert. Rembert, Bssau. Richardson, John. Robinson, John. Robinson, Joseph William. Robinson, Thornton S. 430 REPORT OF THE WAR TRADE BOARD. Ivoss, Richard. Shade, Daniel W. Sharper. Daniel. Sutherland, Keith. Terrell, Benjamin. Towell, Edward. Twaites, James. Watkins, Gail. Whitley, William. Williams, George E. Appointees separated 'before the armistiee or appointed after the armistice. Director : Engman, Harry A., jr. Arendes, William. Austin, Martin G. Abbott, John. Adams, Addie B. Adams, Charles G. Adams, George E. Addison, Elizabeth J. Allen, Howard W. Allen, R. K. Almendinger, Frederick. Ames, Custis T. Ames, Robert L. Anderson, Mary. Ap Jones, Catesliy Murray. Ash, Daisy. Battle, Emma L. Benson, George R. Bidgell, George. Block, Milton. Bohrer, Simon V. Brecher, Harry. Bailev, Hallie M. Bailey, AValter H. Bailor, James. Balcom, Anna E. Barnard, Charles A. Barrow, D. W. Baugh, Thelma O. Baxter, William P. Beach, Edward. Beard, Alta L. Buckley, Edward. Behm, Myrtle. Bell, Allen. Bell, Tracy V. Bennett, Ralph E. Biggs, William N. Blackwell, William R. Blandheim, Earl. Boerner, Laurence. Boland. Margaret B. Boswell, Claude I. Bowel 1, Ernest W. Bowman, .Tames. Boyd, Albert P. Boyd, Joseph. Boyer, Rudy W. Bradley, Robert. Branson, Benjamin A. Breckenridge, Walter Frank. Breese, Gladys. Britt, Louise L. Broadus, Arthur. Broas, Helen B. Broderick, Henry J. Brominski, John J. Bromwell, Berton. Brooke, Andrew. Brooke, Thomas H. Brooks, Walter A. Brooks, AVilliam L. Brown, James. Brown, Margaret. Brown, Robert H. Brown, Sarah E. Brown, Wilbur. Bryant, Theodore H. Brygger, Edward. Buete, George P. Bumbry, Vernie S. Burkhard, Bertha C. Burleson, Raymond C. Burrows, George. Bursley. Howard. Butley, Henry Clinton. Butler, Leroy. Butler, Robert L. Butler, Samuel S. , Byrd, Frederick, liyrd, Harry. Boyd, Martha S. Blackistone, Frank D. Cain, Katharine V. Caltabiano, Fred L. Campbell, Cora D. Campbell, .Tohn E. Carbaugh, William A. Carpenter, Jlarie E. < "r,rr, Jesse W. Carter, Stewart. Chaconas, Theodore J. Cliadwick, A. S. C'hambers, Bertha E. Cliase, Cora 51. Chatman. Milton A. Childs, Abel. Chinn, Adolpho. Chisley, Montgomery. Christerson, Tom. Clark, Calvin. Clark. Eugene F. Clifford, Paul Jones. Clinton, William Carlaton. Clowany, Laura. Cole, Ida C. Coleburn, John W. CoUey, Harry. Collier, Clifford. Collins, W. H. Connors, William V. Conrad, William M. Cooke, Bernard. Corbin, Luther. Cotterill, Charles A. REPORT OF THE WAR TRADE BOARD. 431 Ci-aven, William J. Cvotts, Belfer. Cullom, Edward. Ciuiningliain. Robert. Curran, George D. Cuthbertson, Evelyn R. Cutlar, Eliznbetb. Dade, Charlotte. Pii.iley, Prank L. Daly, Thomas I. Daniel, JMary C. Daniels, Margaret. Daniels, Sidney. Daphney, William. Davis, John. Davis. JIargie. Davis, Milton D. Davis, Mitchell D. Davis, Sadie. Dean, Horace C. De Fontes, Francis A. Diamond, William. Diggs, Richard. Dillon, Nellie E. Donnelly, William J. Donohoo, .Jacob N. Dorrington, Clara B. Dowe, Robert M. Driggers, Wlllard A. Dunn, Mark F. Duval, Louise B. Dyer, William H. Dwyer, William C. Eagan, Frank L. Early, Benjamin H. Eckhardt, Charles N. Elgin, Carroll. Ellis, Colbert. Ellis, James A. Evans, Richard. Evans, William H., jr. Ewing, Monroe A. Faherty, John J. Fairbanks, Richard. Parmer, Lonie. Farrar, Edward. Ferguson, William C. Fisher, Thornton B. Pleete, Charles C. Flood, Genevieve. Floyd, D. W. Plynn, Joseph P. Fogarty, William A. Forbes, J. Marie. Ford, Joseph R. Fowler, Emma Lee. Francis, George W. Fraser, John S. Freeman, Harry. Freud, Marcus L. Friedman, Harry. Gaither, Rodger S. Gallahan, Mary I. Gansa, Herman S. Garner, George T. Gaskins, Reginald. Gee, Evelyn Niles. Gibson, Donald W. Gliidnion, Ruth F. Golze, Alfred R. Goodman, r)onald. Gordon, Harrison. Graddick, Lester W. Grair, Elizabeth S. Graham, Mary E. Graves, Richard E. Green, Oliver V. Greenup, Mellnotte. Griffin, Guy B. Haekley, Russell. Hackney, Floyd M. Haters, JIary E. Haislip, Leon. Halt, Ida May. Hale, Anastasia. Hamilton, Prances A. Hammond, Barney A. Hanborough, '\A\ L. Handy, Sallv. Hardesty, W. S. Hare, Herbert R. Harman, Thomas J. Harmon, Sybil. Harris, George. Harris, Overton. Harris, Overton, jr. Harrison, Lewis Irving. Haskill, Henry A. Hawkins, Anthony. Hawkins, .Tames B. Hawkins, Richard K. Havi'kins, Roland F. Hawkins, Rudolph. Haynes, George. Helm, William H. Heiman, Herbert J. Helms, Anna V. Henderson, Hattie L. Henderson, James J. Henderson, .John. Henson, .Joseph. Herbert, Lillian. Herbert, Victoria C. Hicks, Lucinda. Hicks, Theodore Howard. Hill, Grant T. Hill, Thomas C. Hillman, John G. Hochreifer, Lulu. Hoeke, Warren. Hofmann, Otto W. Hoffman, Annie A. Holmes, Clarence F. Hook, Charles Wallace . Hooper, William E. Hope, William. Hopkins, Charles B. Honk, Raymond L. Howard, Lane. Howl and, Daniel W. Hughes, Robert V. Hume, Robert Scott. 432 EEPOET OF THE WAR TRADE BOARD. Hundley, James Alfred. Hurdle, Charles. Hutchinson, Carrie T. Hutchinson, William J. Jackson, Charity E. Jackson, Elizabeth. Jackson, Elizabeth D. Jefferson, Geo. H. Jenkins, Carroll K. Johnson, Alice. Johnson, Annie. Johnson, Elizabeth W. Johnson, George. Johnson, Green G. Johnson, James. Johnson, John J. Johnson, Joseph W. Johnson, Leroy. Johnson, Walter. Johnson, William A. Johnson, William S. Johnson, Willie. Johnston, Charlotte. Jones, Alphones. Jones, George W., jr. Jones, Hardy B. Jones, Harriett H. Jones, Minnie. Jones, Philip E. Jones, Stockton. Jordan, George W. Jordon, Isaiah. Kean, Sina. Kelley, Mrs. Ohesley B. Kennedy, Patrick. Keys, Montgomery B. King, Gordon. King, Mary. King, Ulysses. Klinger, Bert E. Kuhn, George A. Lamp, Lewis J. Lancaster, Lewis J. Lancaster, Rudolph. Langan, William. Larkin, Jule G. Leckie, Robert. Lee, Norman M. Lee, William. Levin, Isadore. Lewis, Joseph D. Lewis, Nettie J. Linkins, Francis J. Llpschitz, Robert M. Litsinger, Ethel. Loving, William. Lowe, Percy. Lucas, Lawrence. Lukei, Herbert A. Lybrand, Horace W. Lyddane, John W. Lynch, Martin. Lynch, Peter J. Lynch, Vincent A. Maas, Hugo G. McOaddon, Jennlevleve. McOall, Winslow H. McCarthy, Catherine M. McClure, Carlret. MacDermott,'W. V. McDonald, William. MacGillivray, Helen. Mcintosh, Carrie. McLaughlen, Edward. McMahon, Daniel B. McPhearson, John H. McQueen, Harold. Madden, Garfield E. Maier, Franklin L. Marscher, John C, jr. Marshall, Parker. Martin, Edward A. Martin, Emanuel. Martin, Ernest. Matthews, Walter. Meany, M. Isabel. Meyers, Norman T. Miles, George N. Miller, Charles P. Miller, Newton. Minor, James. Mitchell, James O. Moore, Anita 0. Moore, Florence. Moore, .Tames E. Moore, Lawrence M. Moore, William P. Moran, Aubrey W. Morgan, -Oley H. Mowery, Leroy. Murray, James. Murray, .Joseph W. Nagle, Edward. Nellings, George. Newell, David. Nichols, William. Nickens, Fred D. O'Brien, Alice R. O'Connor, Mrs. 0. E. Offord, Louis. Offutt, Olin L. O'Lare, Charles J. Oliver, .Joseph D. Openheimer, Edgar A. Otis, A. R. Pace, Cecil. Page, Harry H. Pair, Hubert. Palmer, John W. Palmer, William Eugene. Parmelee, Solon. Pasch, R. Jerome. Patterson, Perry D. Pearson, Ruth A. Phillips, Charles W. Post, Alfred S. Post, Florence M. Powelson, Carrie M. Powers, Minnie L. Price, Langhorne. Quill, Maurice F. Ramsey, C. S. KEPORT OF THE WAR TRADE BOARD. 433 Redwlne, Lillian R. G. Reed, Robert. Reeder, Clyde E. Reifenberg, Carl V. Reisinger, John R. Reiubert, Carrie. Rice, Preston. Rice, Raymond A. Ricliards, Lewis. Ricliardson, Herbert. Ricliardson, John. Riley, Nelson S. Roberts, Osgood. Robertson, Arthur W. Robinson, Myrtle. Robinson, Wm. E. Rogers, Reid. Rollins, Charles. Rosenfeld, Samuel. Ross, Clifton E. Ross, Frank. Ross, Theodore. Rouse, Albert M. Saunders, James G. Sawyer, Thomas. Schaefer, Jesse O. Scanland, Mrs. S. P. Schlosser, J. G. Schooley, William. Scott, Andrew J. Scott, Benjamin F. Scott, Samuel. Scott, Samuel M. Sellman, Ella. Shackleford, William N. Sherry, Philip L. Short, Lottie. Simmons, Arthur H. Simmons, Blary. Skinner, Fred. Skourup, Anna. Slacomb, Albert H. Smith, Charles. Smith, Charles E. Smith, Clifford F. Smith, David L. Smith, Elizabeth. Smith, Helen Raymond. Smith, John. Smith, Margaret E. Smith, Walter A. ■ Snowden, William. Sommerville, Julia K. Spencer, Alfred A., jr. Spriggs, James. Sproul, Clarissa. Stack, Marie A. Steiner, Charles E. Stephens, Courtlandt L. Stoll, Henri. Stone, Jason D. Stroufe, Roscoe N. Sues, George W. Surface, Frank M. Sutherland, Arthur Leon. Sweetney, George. 103584—20 29 Tabb, Mary Opie. Tall, Lawrence. Taylor, Estella. Taylor, Julian A. Taylor, Lewis M. Taylor, Robert B. Taylor, William E. Tebbs, Harry S. Thayer, Courtney C. Thayer, George H. Thomas, Clarence T. Thomas, Eula J. Thomas, Paul M. Thomen, James T. Thompson, Alpheus G. Thompson, Minnie L. Thurber, Robert K. TifEt, Clarence. Tircuit, Joseph A. Tomlinson, Bertha M. Toms, Charles H., jr. Toomey, Loretta A. Tucker, Cora A. TuUoss, Gilbert M. Turner, James. Tyler, Charles. Wahl, William. Waldren, Bert. Walker, Perry. Walker, Robert. Walker, Wiley L., jr. Walker, William M. Walker, Willie B. Wall, Emma J. Ward, Maurice. Warren, Charles R. Warricks, John T. Wash, John M. Waters, Ernest J. Watson, R. A. Watts, Andrew. Watts, Charles J. Watts, Emily S. Waugh, George. Waynes, James H. Weaver, Wilbur H. Webb, Alice. Weber, Harvey, jr. West, John T. West, Luman. Westerfleld, Cornelius E. Wetherbee, Edith O. White, Howard W. White, Lewis C. White, Thomas A. Whitney, Harry L. Whittle, Johny J. Wildman, Mason. Wilhelm, Harry L. Williams, Dudley. Williams, Frederic W. Williams, George A. Williams, Horace. Williams, James O. Williams, .James R. Williams, Thomas. 434 REPORT OF THE WAR TRADE BOARD. Williams, Weston. Willis, Ralph. Wilson, Bertha. Wilson, Joshua. Wolverton, William T. Wood. Eugene. Wood, Mildred E. Wood, Rufus H. Wyndham, Charles M., sr. Young, Edward, young, Henry. Ackerman, Frank. Ages, Ellen. Ages, Katie. Allen, Lola V. Armstrong, Airrie. Bateman, Ella P. Bolton, Fannie. Brown, Gertrude E. Browne, Janice. Butler, Effie. Chandler, Robert L. Chisley, Irene. Chlsley, Mary B. Constantinidus, Nick. Coostovlakis, Mike. Bearing, May. Donaldson, Anna. . Easton, Mary L. iCAFETERIA. COMPLETE LIST OF EMPLOYEES. Haight, Ida, manager. Tucker, Emery C, manager. Eckhardt, Flora. Floyd, Ethel. Furr, Alice V. Furr, Clara. Jones, Frances. Learned, Charles H. Liaskos, Gust. Silas, Missouri. Simms, Anna. Simms, Ella. Sims, Katie. Sims, Sarah. Smilar, Maggie. Smith, Helen. Thomas, Fannie. Wells, Mabel. Wells, Mattie. Rosa, Frank N. DIVISION OF INFORMATION. PEESONNEL ON NOVEMBEK 11, 1918. Chief : L. B. Van Norman. Van Norman, L. B. Richards, Susan D., secretary. Chonowskl, Julya, assistant secre- tary. O'Dea, Mary, tile clerk. ASSISTANT CHIEF AND CHIEF OF EDI- TORIAL DIVISION. Moore, Paul. Payne, Laura L., secretary. OFFICE MANAGER. Smythe, R. B. Feely, Marie, secretary. TELEPHONE SERVICE FOR PERSONAL LOCA- TION. Ely, Florence. Pierce, Bertha E., librarian. Overby, Ruth, assistant. Armstrong, Martha G., clerk. Garnett, Betty, clerk. Penn, Minnie, clerk. Rising, Meriani J., tile clerk. William.s. Marion C, typist. PUBLICATIONS, EDITING AND PROOF BEADING. Davis, Frederick L., editor. Douglass, Phoebe, assistant. DIGEST OF THE PRESS. Moses, Jasper T., editor. DISTRIBUTION OF OFFICIAL PUBLICATIONS OF THE BOARD. Riter, N. J., assistant. Beuchert, Anna T., typist. Fenet, Mary C, clerk. Hodgkins, Alice, clerk. Newberry, Ethel, typist. Rettman, Emma, clerk. Talbert, Emily, mailing list clerk. REPORT OF THE WAR TRADE BOARD. 435 TRANSLATIONS. Fiebeger, Julia F., translator. Aue, John C, translator. Brown, Lydla G., typist. Johnson, Esther, translator. Kendrick, Eva May, translator. Kretzinger, Clara J., translator. Meunler, Lillian, translator. Mixon, Ada, translator. Rogers, Jeanne, translator. Wright, Sllldred, translator. CLIPPINGS : NEWSPAPEES AND TRADE PAPERS. McGowan, Constance, assistant. Fairall, Catherine W., clerk. Hardcastle, May I., clerk. Harlow, Isabella H., clerk. Heikes, Elizabeth A., clerk. Maxon, Helen B., clerk. Smith, Viola E., clerk. Appointees separated before the aiinistice or appointed after the armistice. Aanestad, Alert P. Blandford, Anna S. Carr, Eleanor. Haslam, Carolyn M. Hatch, Leonard. Holder, John H. Kelly, Elijah B. Mechling, William Hibbs. Moore, Mabel. Purcell, Eileen F. Ross, Marialyse. Rothschild, Richard C. Spear, Marion Gilmore. Tanner, Dora M. Wilner, Gretta R. BTJEEAU OF BRANCHES AND CUSTOMS. PERSONNEL ON NOVEMBER 11, 1918. Director : Alexander H. Bullock. DIRECTOR. Bullock, Alexander H. Holden, Grace M., secretary. Marean, Parker E., assistant. Johnson, Anna E., secretary. DIVISION or ADMINISTRATION, GENERAL OFFICE. H(iyt, M. H., administrator. Brokaw, Marta, junior assistant. Prince, Velmer, secretary. Sadowsky, Phillip, supply clerk. Woltersdorf, Rose, stenographer. (a) Telegrams. Davis, Goldie F., chief. Gorman, Bessie E., typist. Hattield, Loretta D., typist. Hewell, Ruby, clerk. Hoff, Ethel v., typist. Hornberger, Martha A., clerk. Lewis, Ucal Stevens, clerk. Perskin, Anna, typist. Propst, Charlotte, typist. Reagan, Bessie A., clerk. Stone. Ruth, messenger. (6) Files. Ridenhower, Ruby R., chief. Head, Verdie I., typist. Honey, Alice, clerk. McKenzie, Cary E., clerk. Roberts, Ruth, clerk. Wilhide, Ruth, clerk. DIVISION OF INFORMATION AND GEN- ERAL PROCEDURE. North, C. J., assistant in charge. BufEum, Marjorie N., stenogra- pher. ■DIVISION OF RULES AND REGULATIONS. Dewey, F. Henshaw, jr., chief. Pendergast, R. B., assistant. Bullock, Rock wood H., assistant. Holahan, J. Marie, secretary. DIVISION OF CUSTOMS AND POSTAL REGULATIONS. Day, Wallace H., chief. Dorman, Thos. B., assistant. Jones, Frank A., assistant. Bayly, Edith D., assistant. Clark, Hazel M., secretary. TRAVELING REPRESENTATIVE. Holmes, Edgar R. Thompson, Maida, stenographer, BRANCH OFFICES (o) IN UNITED^ STATES PROPER. 1. Boston. Baker, Roland M., special agent. Waring, Guy, assistant special' agent. Massey, Alfred P., transportation agent. 436 BEPORT OF THE WAR TRADE BOARD. Massey, Willard, imports. Farris, William R., assistant. Jackson, Russel L., assistant. Briggs, Gertrude W., stenographer. Calnan, Mary A., stenographer. Harrison, Lucinda S., stenogra- pher. Hassett, Ethel M., typist. LaPuck, Mary, typist. Nally, Alice M., typist. Paty, Loretta C., typist. Reade, Mabel E., typist. Resan, Mary I., stenographer. Simpson, Maude R., stenographer. Smith, Gertrude E., stenographer. 2. Chicago. Wallace, George W. R., special agent. Bishop, Frank T., assistant. Berger, Sam, messenger. Carlson, Esther, typist-clerk. Creviston, EUzabeth, file clerk. Deschman, Lillle, typist. Gavin, Agnes, typist-clerk. Gavin, Esther, typist. Gould, Anna, typist-clerk. Kent, Katheryn A., typist-clerk. Lasek, Veta J., clerk. Leathers, Martha D., file clerk. Levinson, Etta G., typist. Mezger, Anna M., file clerk. Xeville, Grace, typist-clerk. Newton, .Julia R., clerk. O'Neill, Agnes M., typist. Peterson, Gladys L. M., messenger. Prothero, Evelyn, typist. Roche, Nora, telephone operator. Schwartz, Gertrude, typist-clerk. Schwendan, Mary L., typist. Sieving, Esther, typist. Smith, Elsie, typist-clerk. Wiseman, Evelyn, file clerk. 3. Cincinnati. Gilchrist, R. Wilde, special agent. Schedine, Elsie V. S., stenographer. Batsche, Irene F., clerk- typist. 4. Detroit. Clancy, Robert H., special agent. Scullen, Hugh T., assistant. Chandler, Marion L., stenographer. Fields, Elizabeth M., stenographer. Jackson, Marion C., clerk. 5. Eagle Pass. Jordan, Frank L. Fox, Marguerite, stenographer. Shafter, Sara, stenographer. 6. El Paso. Wright, John A., special agent. Brown, Isabell, stenographer. Saylor, Lottie S., clerk. 7. Galveston. Allen, Frank A., special agent. Jones, Walter G., assistant. Hussey, C. E., assistant. Harvey, Alberta V., typist-clerk. Stevenson, Gladys M. 8. Laredo. Williams, Ellis C, special agent. Williams, Wilma G., assistant. Vidaurri, Sara B., stenographer. Yeager, Anita M., stenographer. 9. Los Angeles. Dunkerley, William, special agent. Peyton, Robert C, assistant. Davis, Clara E., typist. McCreery, Helen E., typist. McMillin, Alice L., stenographer. Woody, Nellie M., typist. 10. Mobile. Harrison, M. Waring, special agent. Bowen, Hazel C, stenographer- typist. Hutchins, DeWitt, stenographer- typist. U. New Orleans. Henican, Joseph P., special agent. Westfeldt, George G., assistant. Hauk, Paul, stores clerk. Jackson, John J., assistant. Hesse, Edward, telegrapher. Bastian, Olive W., clerk. Dieck, Anna, clerk. Dower, Thomas J., messenger. Knobloch, Eunice, clerk. Larson, Olive M., clerk. Leaveau, George, messenger boy. McMurray, Ruth, clerk. O'Neil, Mary E., clerk. Palette, Virginia, clerk. Roche, Emma M., clerk. Spuhler, Vera M., clerk. Sutherland, Mabel, clerk. 12. New York. Michael, Marc M., special agent. Bartholomew, George H., assistant. Batchelder, Charles C., assistant. Bodman, George M., trade expert. Burnside, DeWitt L., assistant. Chadbourne, Frank M., assistant. Chatfield, Henry S., assistant. Clark, John L., assistant. Olucas, Lowell M., assistant. Condict, Harold N., assistant. Conrtlct, .John H. N., assistant. Cotting, Jameson, assistant. Daveiinort, Edward W., assistant. REPORT OF THE WAR TRADE BOARD. t37 DeRaismes, Francis Embree, assist- ant. Dorman, James H., assistant. Douglass, Payson Stone, assistant. (examiner). Dwight, F., assistant. Eells, .Tohn P., assistant' Enos, Alanson T., jr., assistant. Evans, Louis P., assistant. Ewiirt, Talbot, assistant. Fales, Haliburton, jr., assistant. Gaiser, Charles A., assistant. Giffin, Howard, assistant. HafCner, Jacob,) assistant. Hall, Thos. W., assistant. Halstead, Robert H., assistant. Hinchman, John R., assistant. Kane, James F., jr., assistant. Klnnicutt, Francis H., assistant. Kirk, Frederick A., assistant. Lucas, Philip H., assistant. McKlm, Winthrop, assistant. ilcMiiUen, Ray, assistant. Monroe, Rolland G., assistant. Morse, Howard M., assistant. Nugent, Edward, assistant. Ogden, Charles W., assistant. Parrish, James C, assistant. Peck, Lawrence F., assistant (W. T. I.) Peters, Thomas M., assistant. Phillips, Alexander, assistant. Reed, Kenneth M., assistant. Rothschild, Meyer D., assistant. Seeley, George, assistant. Schermerhorn, Bernard T., assist- ant. Sherwood, Howard G., assistant. Spedden, F. O., assistant. Stetson, Mortimer .A., assistant. Stuart. Malcolm, assistant. Tucker, Carll, trade expert. Tucker, Wentworth, assistant. Watson, Winsor H., representative Contraband Committee. Whiteside, Arthur D., assistant. Willcox, M. B., trade expert. Worth, Joseph, assistant. Wright, Glenn, assistant. Abel, Rose, typist. Abels, Florence, stenographer. Alversa, Laura Madeline, typist. Atha, Margaret M., stenographer. Banter, Ruth C. L., typist. Barnett, Helen L., typist. Barrett, Marion V., typist. Becker, Lillian, typist. Berg, Agnes C, typist. Bernstein, Rebecca, typist. Bird, Emma F., filing clerk. Eluhm, Rose, typist. Boxt, Sara, typist. Brofman, Jennie, messenger. Brown, Florence, stenographer. Butler, Eleanor G., clerk. Byrne, Anna V., typist. Campbell, Florence, t.vpist. Carr, Agnes R., clerk. Carr, Mary, clerk. Carroll, Marie Claire, typist. Carter, Anna Gray, clerk. Charmak, Isabelle E., messenger. Clark, Harold E., messenger. Clary, Robert T., usher and clerk. Clements, Mae, clerk. Clifford, Susan V., telephone op- erator. Coen, Mildred S., clerk. Coffey, Catherine, clerk. Cohen, Harry, messenger. Cohen, Jessie, typist. Condon, Mary, clerk. Conly, Anna Grace, clerk. Oonroy, John E., messenger. Costigan, Kathryn, file clerk. Cotter, Katherlne J., file clerk. Croes, Mildred F., ^ndex and catalogue, clerk. Cunneely, Sadie D., clerk. Oushman, Margarette F., clerk. DeVoe, Elsie M., clerk. Dabney, Emory F., clerk. Decker, Laura, clerk. Dickinson, Edith P., file clerk. Donegan, Dorothy M., typist. Donohue, Celsus, clerk (notary). Dorn, Comfort Randle, clerk. Downie, Mary E., clerk. Drachman, Stella, typist. Drut, Henrietta, clerk. Dublin, Lillian, typist. Dunbar, Minnie B., clerk. Earley, Cecelia B., file clerk. Eberling, Grace, typist. Eidler, Anna R., typist. Ellenbogen, Rose A., clerk. Etter, Eleanor L., stenographer. Farrell, Florence A., clerk. Farrell, Thos. F., clerk. Fass, Celia, clerk. Feinstein, James, clerk. Feldman, Herman A., clerk. Perry, Minnie V., clerk. Feynman, Bessie, typist. Flaherty, Rita, clerk. Flynn, Helen L., clerk. Frank, David, messenger. Fundamensky, Solomon B. Fusaro, Julia A., typist. Gallagher, Mary A., stenographer. Gearty, Elizabeth A., stenog- rapher. Gegan, Loretta M., typist. Gillen, John, messenger. Ginsberg, Lillian, stenographer. Goggliis, Marie T., typist. Goldberg, Rose, stenographer. Goldenberg, Esther, clerk. Greenberg, Gertrude, messenger. Greenwald, Sadie, clerk. Guyp, Charlotte Adele, clerk. Hagen, Virginia, clerk. Halpern, Louis, messenger. Halstead, Nanette C, typist. 438 REPORT OF THE WAR TRADE BOARD. Harvey, Mary T., clerk. Heaney, Alice M., clerk. Hennessey, Frances M., clerk. Herdt, Elizabeth A., typist. Horn, George, messenger. Horwitz, Essie, stenograplier. Hueulich, Ida M., typist. Hutton, Winifred H., stenog- rapher. Hyman, Clara, clerk. Hymowitz, Gertrude, stenographer, Irolla, Louise .!., clerk. Jacobs, Goldie, typist. Jacobson, Edward W. Johnstone, Frances E., clerk. Jones, Mary E. B., clerk. Karpas, Augusta, typist. Kavanaugh, Edith M., clerk. Keenan, Isabel V., clerk. Kelly, Irene M., clerk. Klewansky, Phoebe, typist. Koppleman, Louis, clerk. Kornobis, Florence A., typist. Kramer, Flora, clerk. Kulik, Florence G., typist. Kuhn, Jeanette D., stenographer. Kuntze, Jessie L., clerk. Langmeyer, William, clerk. Lautenschlager, Gussie, typist. Lavinsky, Anna, clerk. Lazar, Sarah, clerk-typist. Lazinsky, P^annie, typist. Lebowitz, ("elia, stenographer. Lee, Belle, clerk. Leibowltz, Pauline. Lesiu, Ethel M., stenographer. Levine, Florence, messenger. Levy, Harry, messenger. Llchtenstein, Ethel, typist. Liefschutz, Dorothy, typist. IJvingston, Monica R. Lloyd, Carmen D., clerk. Logan, Helen L., clerk. Lynch, Elizabeth M., typist. Lynch, James Walter, messenger. Jle(Jarthy, Francis, messenger. :\tcCarthy, Helen, clerk. McCormick, Sarah B., telephone operator. McGarry, Rose, clerk. JIcGarry, Sabina, clerk. McPherson, Eugenie, clerk. McShane, Katherine V., stenog- rapher. Mahoney, Honora G., clerk. Malce, Martha, typist. Malefski, Sadie, typist. Maloney, Alice M., typist. Maloney, Marie 0., clerk. Manierre, Ruth L., clerk. Markowitz, Rose, clerk, ilarks, Phebe PI. R., clerk. ^Martin, Mercedes E., typist. Mason, Anna M., stenographer. Mattison, Clara il., typist. Mayer, Rebecca, clerk. Meren, Freda, clerk. Michael, Anna M., clerk. Miller, Alice C, typist. Miller, Mary C, index and cata- logue clerk. Mod, May Grace, clerk. Montgomery, Kathryn B., clerk. Morrison, Jennie E., clerk. Moskowitz, Hazel A, typist. Moss, Miriam, typist. Murphy, Mary A., clerk. Murphy, Harriet A., clerk. Murphy, Irene M., clerk Murphy, Sara E., typist. Nathan, Kitty, typist. Nelson, Madeline J., stenographer. Ne\\'man, Ida, clerk. Newman, Leah, typist. Nulty, Amanda M., typist. O'Connor, Josephine P., stenog- rapher. <_)'Reilly, Kathleen C, clerk. Orentlich, Ethel, typist. Paciello, Anita, minor clerk. Pasternak, Fannie, stenographer. Pattona, Marie, typist. Payne, Evelyn Q., stenographer. Petry, Mae M., typist. Philhps, Esther B., typist. Phillips, Frieda, clerk. Pigot, Irene, clerk. Porter, Teresa L., typist. Powers, Anna T. D., clerk. Pravder, Henry, messenger. Prigrano, \^'illiam, multigraph op- erator. Prout, Eugenie, clerk. Qualntance, Julia, clerk. Quilgan, Agnes I., stenographer. Quinn, Joseph G., assistant. Randle, Comfort M., clerk. Reiner, Frances, typist. Repaci, Concepta, typist. Repetti, Gregory G., messenger. Rhoades, Evelyn S., clerk. Rice, Marion T., messenger. Rissetti, Adele C., clerk. Rolf, Helen M., typist. Roseman, Margaret, file clerk. Rosenberg, Rebecca, clerk. Rosenberg, Rebecca B., clerk. Ross, Margaret C, typist. Ryan, Martin J., telegraph opera- tor. Sable, Esther, messenger. Salzman, Jlax, messenger. Sawyer, Mildred, coder. SchifErin, Dorothy, minor clerk. Schnizer, Lucy E., typist. Seholder, Henrietta, typist. Schott, Matilda H., clerk. Scott, Matilda A., typist. Searing, Mattie, clerk. Seph, Ruth, clerk. Shannon, Elizabeth R., clerk. Sharp, Edith, stenographer. Sherman. Margaret R., messenger. Silverberg. Mildred, typist. REPORT OF THE WAR TRADE BOARD. 439 Simon, Jennie, typist. Slmonson, Elizabeth, clerk. Sloan. Edith Sunniei-, typist. Slutsky, Bessie, clerk. Smith, Elizabeth L., clerk. Smith, Teresa M., file clerk. Sparaco, Joseph, messenger. Spica, Irene F., typist. Starrett, Rose H., clerk. Steinberg, Sarah, typist. Stern, Estelle, clerk. Stevens, Frances O., typist. Stewart, Joseph, messenger. Streicher, Susie A., minor clerk. Sullivan, Elizabeth F. C, clerk. Tolkowsky, Kate, typist. Towle, Helen P., stenographer. Van Vleck, Elizabeth, clerk. Varanelli, John, messenger. Verniilya, Erlirh B., stenographer. Vogel, Henrietta, typist. Walcoff, Sophie, typist. Watt, Emma B., clerk. AVeg, Ruth, clerk. Weinberger, Lillian, clerk. Wendroff, Bessie, clerk. \^'erner, Lillian M. Wessolock, Martha, typist. \\'heeler, Katherine E., clerk. Whipple, Donna, clerk. White, Alice M., typist. Whiting, Martha G., clerk. Wimmer, Georgianna, telephone operator. Wood, Lula A., clerk. Woods, Rose Mary, clerk. Young, Irene, multigraph operator. 13. Nogales. Haley, W. T., special agent. Bloomberg, Harry, assistant. Foore, Rosalie G., clerk. Kelly, Mary C, stenographer. H. Norfolk. Bogart, Theodore, special agent (trans- portation ) . Broughton, John G., assistant. Wiatt, F. C, clerk. Bell, Jessie, telephone operator. Copeland, Doris, clerk. Forbes, Nellie C, clerk. Sinclair, Lucy B., clerk. Taylor, Bessie M., typist. Turner, Doris, clerk. 1.5. Philadelphia. Dixon, Edward C, special agent. Frutman, Bessie, typist-clerk. Hartford, Marie Vail, file clerk. McCormick, Regina, typist. Murphy, Nellie M., typist. Sturzebecker, Maude, stenog- rapher. West, Elizabeth, stenographer. 16. Portland. Corbett, Henry L., special agent. Smith, Lawrence B., assistant. Robinson, Honor M., stenographer. 17. St. Louis. Overall, John H., special agent. Conroy, Gertrude C, stenographer. Jordan, Nana E., typist. Kayser, Olga R., stenographer. Pritchard, Violet L., typist-clerk. 18. San Francisco. Miller, O. O. G., special agent. Cory, Isaac H., assistant. Clark, Charles T., office manager. Shepard, A. D., assistant. Batchelor, Jessie L., typist. Brown, Inez R., typist. Chamey, Hortense M., typist. Chapman, Ruth T., typist. Dalley, Anna H., stenographer. Demartini, Pauline, typist. Dwyer, Bessie G., chief clerk. Eschbacher, Louise M., stenogra- pher. Goodman, Ruth A., typist. Graeber, Jennie I., typist. Heatherly, Bessie E., typist. Knowles, Lillian R., typist. Leslie, Geraldine B., typist. Long, Irene E., coding clerk. McDowell, Edna M., typist. McShane, Ruth M., typist. Moran, Margaret A., typist. Otis, Daisy Adams, typist. Presba, Leonore B., typist. 19. SavannaJi. Motte, John W., special agent. Linley. Edward A., assistant. Fitch, Elizabeth M., stenographer. 20. Seattle. Ferguson, J. Macphee, special agent. Wright, Edgar J., assistant (trans- portation). Eglin, EfEa G., stenographer. Frisch, Stella B., stenographer. Irvine, Jessie A., stenographer. Victor, Hazel \., clerk. Waack, Myrtle M,, stenographer. BRANCH OFFICES (6) IN NONCONTIGU- OUS TEKBITOET. 1. Guam. Commandant. 2. Honolulu. Franklin, Malcolm A. 440 KEPOET OF THE WAR TRADE BOARD. S. Juneau. Pugh, John F.' Garfield, C. D.' 4. Manila. Aldanese, Vlncente. 5. Panama. Harding, Gov. Chester. 6. St. Thomas. Curry, Darwin O. 7. San Juan. Moore, Hayden L. Rubio, Alejandro. 8. Tutuila. Commandant. (C) COOPERATIVE OFFICES IN THE UNITED STATES. 1. Minneapolis (Traffic Association). Burton, Frederick W. 2. Cleveland (Chamber of Commerce). Wilkinson, Emilio V. Appointees separated before the armistice or appointed after the armistice. Cameron, Elizabeth 0. Higgins, Mary. Healy, Minnie. .Tones, Fanchon P. Kreger, Cora. Laney, Alexander. Lally, Margaret M. Lincoln, Myrtle E. McMillin, Mae. Martin, Edith M. Martin, Mildred. Murray, Irene M. Newquist, Evelyn. Odell, Grace. Prothero, Kate. Regan, WiUiam Francis. Roberts, Ruth. Rowell, Malvina L. Scott, Mabel A. Swayzee, Charles E. Walker, Josephine. Wiley, Lillian. Vickers, Rhea N. BtTEEAU OF RESEARCH. PERSONNEL ON NOVEMBEB 11, 1918. Director : Arthur E. Swanson. DIRECTOR S OFFICE. Swanson, Arthur E., director. Irish, Flora A., secretary. COMMODITY STUDIES. Bogart, Ernest L., in charge. Cooperrider, Alice L., secretary. Animal products. Posey, C. J. Eaton, Edith O., assistant. Breadstuffs. Bengtson, Nels A. Priester, Helen B., assistant. Chemicals. Willier, Michael L. Norberg, Beulah M., assistant. Goal, coke, and mineral oils. Hopper, Walter E. Coarse filers. Coates, Jane B. Cotton. Levy, Samuel L. Forest Products. Hoyt, Homer. Riegner, Minnie C, assistant. MetaZ manufactures. Bonnett, Clarence E. Metal manufactures: Iron. Pugh, Alexander L. Newhouse, Ruby M., assistant. Metal manufactures: Tin. Noyes, S. G. 'Died Oct. 25, 1918. ' Acting, Oct. 25, 1918 ; special agent, Dec. 30, 1918. REPORT OF THE WAR TRADE BOARD. 441 Minerals and raw mineral products. Bastin, Edson S. MacDonald, Charlotte, assistant. Minerals. Schultz, Robert S., jr. Paper. Jordan, William M. Ruiter. Hunton, E. Deane. Gleason, Mary H., assistant. Silk, wool, and hair. Cowen, Abraham Y. Griess, Selma S., assistant. Miscellaneous commodities. Shaulis, Lloyd L. Willoughby, R. C. COUNTRY STUDIES. Barrows, Harlan H., in charge. Crofutt, Mabelle E., secretary. Africa. Davol, Ralph. Argentina. CoUings, Harry T. Murphy, Elizabeth, assistant. Brazil and Uruguay. Redfield, Arthur H. Watkins, Helen B., assistant. Central Powers. Lahee, Arthur W. Rothschild, Edith, assistant. Smith, Roswitha C, assistant. China. Moran, Edward E. France and Belgium. Cumberland, William W. TUden, Alice F., assistant. Holland, Philippines, and East Indies. Moore, Blaine F. Bowers, Ethel, assistant. Italy. Giorgio, Roque. Braunecker, Elizabeth, assistant. Japan. Young, Arthur N. Rhoades, Marian, assistant. Japan. Morton, Alfred B. Davis, Helen E., assistant. Latin-America (Mexico, West Indies, Central America, North Coast of South America, Paraguay) . Graham, Walter B. Funston, Margaret, assistant. Russia. Kayden, Eugene M. Jones, Easley S. Carey, Lillie M., assistant. Fox, Etta B., assistant. SCANDINAVIA. Sweden. Carlson, Knute E. Norioay. . eleven, N. A. N. Denmark. Donaldson, John. Assistants to Scandinavian group. HoUlngsworth, W. W., assistant. Peterson, Ruth B., assistant. Spain, Portugal, Azores, and Canary Islands. Horton, Byron B. Walradt, Henry F. Kendall, F. A., assistant. Schubrlng, Selma L., assistant. Switzerland and Greece. Rufener, Louis A. Woodman, Clara B., assistant. United Kingdom. Paton, William A. Chalmers, Catherine, assistant. West Coast of South America. Bassett, Herbert. Belden, Luella H., assistant. SPECIAL STUDIES. Smith, J. Russell, in charge. Blakey, Roy G., trtide policies. Mudgett, Bruce D., statistical econo- mist. Powell, Fred W., statistical econo- mist. Wildman, Murray S., trade expert. 442 REPORT OF THE WAR TRADE BOARD. TRANSLATOKS. King, Rachel. Fairfield, Mary P. OFFICE MANAGEK'S OFFICE. Hawes, C. S., office manager. Sloan, Lida B., assistant. Farrell, Eileen, assistant. Harrington, Elizabeth M., supply clerk. Jones, Gertrude L., general flies. Davis, Edna K., assistant. Moore, Leah, assistant. Amiss, Ruth, confidential flies. Keating, Edith F., assistant. COMPILATION DIVISION. Shelton, W. Arthur, chief. Glasbrenner, Amanda, assistant chief. Planning Section. Byrnes, Agnes M. H. Moon, Dabney. Compilation Section. ISurcham, Aura. Agnew, Alma S. Beers, Rose M. Boston, Emily. Brooks, Nettie R. Bunner, Katherine M. Bush, Clara P. Hallock, Olive N. Harry, Mary B. Hayes, Johanna R. Hopkins, Mabel R. Hussey, Ida B. Jacobus, Frances B. Kimmons, Kitty. ilcColm, Ida F. McGregor, Bessie. McNeely, Bennie. Magel, Dora. Marbutt, Louise. Marshall, Frances A. Morgan, Martha M. Nelson, Isabel. Platner, Alberta E. Ross, Lizzie M. Scearce, .lennie Leah. Sell, Blanche M. Snell, Maude Wesley. Tarver, Rosalind N. Taylor, Elizabeth F. Van Scharts. Helen K. Virmond, Bertha J. Walker, Jessie 0. Williams, Iva May. Computation Section. Clayton, Jessie A. Avery, Elsie D. Berg, Freda. Bowling, Rachel. Du Bose, Margaret L. Farrell, Gertrude. Fischback, Lena C. Gistwite, Jennie F. Gray, Maude B. Hunter, Constance D. KaufCman, Gladys R. Robinson, Gladys M. Rosenberger, Sylvester L. Saraflan, Clara. Stewart, Betty. Scan(tinaciu)i Statistics Section. Sloan, Anna B. Ballantyne, Bess. Mustain, Gertrude. Department of Commerce Records. Clark, Eleanor. Becker, Grace G. McCarthy, Mary E. Mills, Lillian. Schrock, R. H. War Trade Board at Department of Commerce. Burlingame, Florence. Carnahan, Anna. Clymer. Julia E. Crandall, Ada B. Holden, Mary H. Kerr, Margaret. Lyons, Ruth. McPherson, Ruth. Mann, Elsie A. Pace, Bertha A. Palmer, Sallie M. Vogt, Amelia. TYPING AND STENOGRAPHIC DIVISION. Proctor, Mary Fergus, chief. Chesney, ilargaret H., assistant. Adelsperger, Bessie M. Beaghan, Barbara. Beale, Ida A. Brennan, Sara. Burnett, Zula. Burns, Gertrude .1. Call, Alice B. Campbell, Marguerite M. Carey, Lillie M. Church, F. Jean. Deetz, Thelma C. Drew, Clayton L. Esch, George. Fisk, Minnie. Fitzpatrick. Rose. Fulcher, Anna. Fulcher, Annie M. Garland, Elise V. Garrett, Mary F. Gettman, Anna C. EEPORT OF THE WAR TRADE BOARD. 443 Harvuot, BXiirhm. Hauptman, Llllie M. Hiintinijtdn, Carrie K JoUiffe, Lillian A. Johnson, Isabel H. Jones, Minnie J. Keitzer, Marguerite. Kfusinser, R. Lane, Jennie M. McCodk. Katherlne. Mace, Elma L. Mack, Hazel. Merryman, F. Teresa. Miller, Edith. Moon, Helen. Myers, Pearl. Newberry, Elba S. OsboTirne, Clara M. Pine, Helen G. Pope, H. S. Powell, Leah Gladys. Prall, Ethel M. Rehkopf, K. Ruth. Rowton, Alice. Schaaf, Clara C. Smith, Consuelo X. Stickney, Nellie G. TrefCren, Leo J. Tucker, Margaret L. Wad.sworth, Margaret. Wallauer, Dorothv E. Walsh, David. Watkins, Margaret. Welch. .Josephine JI. Woodke, Sylvia. Workman, Frances. MESSENGERS. Fells, Lorenzo. Hoffman, Christopher P. Washington, John A., Appointees separated before the armistice or appointed after the armistice. Directors : Young, Allyn A. ; Adriance, W. M. ; De Laittre, Karl. Armstrong, Delia M. Alber, Virginia B. Andrews, Cora S. Badger, Beatrice L. Becker, James H. Beifeld, Robert S. Biegert, Marian. Blau, Jerome L. Blumer, Pearl. Bohannon, Grace A. Brown, Leola P. Bulla, Levi D. Burd, Adelma H. Butterworth, Ruth G. Carney, Matthew F. Chalker, Victoria L. Chase, Lenox E. Christopher, Frank A. Clarke, Nell R. Cohen, Maurice H. Cosgrove, Beatrice Catherine. Croft, Helen. Cushing, Sumner W. Day, David E. Deese, Fred. Dickinson, John. Donnelly, Ida. Dovel, Olin A. Eldred, Wilfred. Farrell, Helen L. Fitzgerald, Elizabeth. Fosler, Bess. Foster, Penninah L. Gerlets, Cora M. Goldworm, Matthew L. Gras, Norman S. B. Green, Dessa Arnold. Greene, Herbert. Haly. Honore. Hamby. A. McP., jr. Hamer, Philip M. Harmon, Gertrude B. Hecht, George. Helbein, William. Hodge, Katherlne A. Hubbard, Marie E. Hughes, Oliver B. Huttleston, Helen M. Jones, Dolly. Jones, Isabelle M. Kedrin, Venceslas. Kelly, Marion. Kirstein, Mina S. Lear, Kathryn Elizabeth. Lefferts, Walter. Lloyd, Margaret A. Luckett, Robert E. Lutes, Laura F. McCarthy, Mary E. McClellan, Frances. McCoy, Earle Q. McMillan, Fay E. Messier, Loretta C. Middleton, Olive. Miller, Rose. Muekley, Henry C. Murphy, Esther A. Myer, Pearl. Myers, Mildred L. Myres, Minnie M. Omohundro, George N. Ostrow, Walter W. Oswald, Maude N. Pollock, Ivan L. Bedford, Amy A. Ridgeway, Grace. Ross, Herbert W. Rothschild, Helen. Rouse, Ruth A. Rowe, H. Martina. Rush, Lyle. Saloman, Sidney H. 444 REPORT OF THE WAR TRADE BOARD. Schultz, Henry. Schureman, Ethel M. Smith, Vincent F. Smith, William F. Soderquist, Edna. Spangler, Grace M. Sprague, Olwin M. W. Sterner, Jessalyn. Stolioe, Hazel I. Storm, Charles Walter. Tepper, Bengamin. Trice, Gladys. Usher, Dorothy Bliss. Van Sickle, Janet. Warshow, Herman. Whitbecls, Ray H. Wilensky, Joseph. Willis, Anna W. Wolf, Estella. Wood, Laura. Worster, Louise. WAR INDirSTRffiS DIVISION.^ PKICE SECTION. Mitchell, Wesley C, chief. Aldrich, H. R. Anderson, Frank F. Anderson, Susie L. Atwood, Jane'K. Averill, W. A. Barber, William A. Barnes. Eva A. Barton, Elizabeth. Belt, Esther R. Benjamin, E. Gail. Boothe, Vira B. Bottlemay, Ajin M. Bowler, Marion. Bowman. Maude. Breithut, Major F. E. Brooke, Marshall. Brooks, Arta. Brown, Elizabeth. Bruning, Harry F. Carey, Elizabeth. Carleton, Capt. Paul W. Cassebeer, F. W. Carroll, Julia C. Coale, Anne E. Coates, Jane B.' Cornwall, Grace. Curran, .John M. Danforth, Mary L. Davies, Martha. Day, Ida R. Dickinson, Florence. Dorsey, Catherine. Dorsey, Mary. Evans, Agues McC. Fairchikl, Grace. Fetzer, Dorothy M. Finnegan, Catherine. Ford, Grace. Fowler, Mrs. E. M. Fi-y, C. L. Gager, Ddrothy. Gall.ngher. Catherine. Gallagher, Ella. Garrett, Paul W. GriMsinith, JMargaret L. Grady, Henry F. Green, Julia. Hannah, Christine. Henry, Hazel. Herst, Edith G. Heacock, J. Linden. Hiekling. Sarah. Hotciikiss, Mrs. AY. E. Hoyt, Homer.^ Hood, Mabel. Hughes, Florence G. James, A. E. .Tennings, Helen E. Jones, Webster N. Kagan, Leo B. Kehr, Florence. Koch, John. Law. H. M. Lesher, C. E. Lewenberg. H. L. Lewis, Capt. W. Lee. Long, Alma I. Lubin. Isador. Lipphard. Mildred E. JIc.Alee. Alice. McCarty, Alice. Ma gee, Mary. :\faxwell, Lloyd. MeUlnim. W. Buell. ^liddaugh. Florence. Minnick. Arthur. Mitchell. Blanche, ^loynihan, ilary. Obrig, Muriel. Gwen, Elizabeth. Peltason, Paul A. Penniman, Frances R. Pollock, Betty. Price, Anne. Ray. Anna. Ray. Elsie. Reilly. Hazel F. Richard, Colette. Rogers. James H. Ryan, Marie E. Ryder, Osoar P.. Sandmeyer. Ida V. Schnnickler, Jacob. Self. Florence F Shaullis, L. Jj » Tiansfeired to War Trade Board, January, 3010. 2 Loaned by Bureau of Research. EEPORT OF THE WAE TRADE BOARD. 445 Sheldon, Davina. Sholton, Katherine. Smith, Cora M. Snodgrass Catherine. Snodgrass. Elizabeth. Stakeiii, Rosalene. Stark, Sadie L. Stewart, Stella. Stewart, Walter W. Stoker, Ruth. Tazalaar, Marguerite. Thomas, William R. Trumbull, Capt. Harlan. Van Wye, Myrtle. Wade, Irene. Wallace, Hermian. Weeks, Mrs. F, P. Wildmau, Murray S,^ Willard, H, R, Wilson, Stella, Wilkinson, Blanche. Wolman, Leo. Wood, Debora. INDUSTRIAL COXDITIOKS SECTION. E\-ank, Lawrence K., chief. Batson, Winifred. Dunham, Esther. English, Carrie. Gorman, Dorothy, Hamilton, Cora N, Jackson, Charles D, Nichols, Dorothy, Parker, (I'lara. Pollitzer, Aline, Redford, JIrs, A, A, Rosenzweig, Charles L. Simpson, Myrtle, Tomlinson, Mary W, BTTREATT OF TABULATION AND STATISTICS. PERSONNEL ON NOVEilBER 11, I'.lls, Acting Director : W. C, Sims. W DIKECTOE S OFFICE. Sims, W, C, acting director, Dwinell, Caroline E,, secretary. Ogsbury, Charles R,, assistant direc- tor, Dias, Anna K,, secretary. Flaherty, Doris, clerk, CLEEICAI, SECTION. Carroll, ICatherine C, section chief. Clerks. Bond, Emma. Bright, Daisy. Brunson, Ruby. Cannon, Lillian G. Cannon, Margit B, Fees, Ruth D, Davis, William C. Perrell, Nettie S, Green, Grace L. Hall, Zana. Kelly, Katherine B. Kepley, Nell, Laing, Mary R, Marshall, Helen M, Massey, Bessie V. Moore, Mary L. Poppleton, Hilda. Scott, Katherine L, Sisson, Sadie A. Skelly, Nell J, • Wetherbee, Winnifred G, rONVEESION SECTION. Howell, Charmian, section chief. 1 Loaned by Bureau Clerks. Butler, Iris M, Everett, Edna O, Kepley, Hazel, Jones, Winifred H, Justus, Inez. Moseley, Sallie Mae. Newman, Dorothy A. CODING SECTION. hiting, iXary K,, section chief. Clerks. Ambrosi, Anita M, Andrus, Clara L, Ashworth, Bertha C, Austin, Bertha, Banes, Alice E, BarkduU, Marie. Beatty, Esther S. Bell, Louise P, Bennett, Phebe L, Boyce, Sadie L. Bulman. Edna, Bussard, Grace T, Carmack, A. Christine, Carroll, Margaret M, Champney, Augusta. Corlett, Christine M, Cole, Emma J. Coleman, Nellie M, Conrad, Doris M, S, Coughlin, Cecilia M. Crocker, Florence B, Davis, Hilda, Denhardt, Grace, Doctor, Leouie. of Research, 446 REPORT OF THE WAR TRADE JiOARD. Doyle, Anna. Edwards, Bess. Ewing, Sallle R. (Tallagher, Willa. Ham, Fern D. Hamelink, Rena S. Hart, Leona E. Healy, Norine. Hedden, Mary. Hicks, Lillian. James, Mary P. Jones, Lucille T. Kirk, May Towles. Klrkpatrick, Frances B. Lohner, Martha L. McAneney, Maude E. McFarren, De Etta. McCllnton, Annie L. McWhinnie, Agnes. Magruder, Helen. Malone, Jeannette'V. Murphy, Grace A. Xeunian, Viola. Rabbit, Ella G. Sanders, Homer L. Shelley, Glenn N. Smith, Miriam E. Stout, Josephine. Tabor, George L. Taylor, lona Wathen. Weiss, Regene M. Wisman, Fannie. AVorking, Grace. Messenger. Cooper, Raymond. Pl^XCHING AND VBKIFYING SECTION. France, Emma G., section chief. Car-d puncher.';. Abell, Mary. Balrd, Francelia. Barber, Lois E. Beall, Margaret. Brandt, Alma. Brown, Mary C. Bruff, Naomi M. Burke, Madeline V. Butler, Rita L. Coe, Cornelia. Cox, Margaret. Crawford, Nettie G. Cullen, Teresa B. Davis, Edna. DeAtley, Elsie. Deaton, Lois. DeGaw, Ethel. Downing, Sallie. Drake, Marion Roberts. Edwards, Allle V. Edwards, Elizabeth E. Eppley, Lydia. Goldstein, Mary. (Toodall, Anna B. Gray, Mabel. Hewlett, Cleo. Hohein, Loretta M. Hurley, Grace. Inge, Lillian. Johnson, Julia V. Jones, Bessie H. Kirby, Nettie G. Lee, Elizabeth. Lehman, Emma R. Lewis, Louise Edna. Longley, Mrs. M. T. Lynch, Helen M. McBride, Abbie. McLeod, Pauline. McLeod, Francis. McQuilken, Margaret. Moore, Margaret. Murphy, Bessie. Nicholson, Marguerite. O'Brien, Jane. O'Day, Charlotte. Ogden, Mary L. Peverill, Ruth. Pope, Annie. Pringle, Elizabeth. Reed, Beryl L. Roberts, Agnes. Rogers, Marie E. Rohrman, Florence. Rose, Violet A. Sager, Gladys M. Schleith, Fred L. Stiles, Marie. Swayzee, Helen. Thomas, Blanche I. Thompson, Evelyn. Trent, Susie. Ulrich, Bessie M. Webster, Evelyn M. AVeir, Richie. Yoe, Mary S. Tuetter, Helen W. Zimmerman, Katherine M. Verifiers. Ranahau, M. Margaret, subchief. Buzzone, Elmira. Cash, Margaret. DeNona. Estelle. Dobrowolski, Margaret M. DufEy, Agnes. Bnglehardt, Genevieve. Green, Jane R. Junkin, Ruth E. Laughlin, Florence. Mariey, Mary L. Mcllyer, .Jennie. O'Keffe, Mary P. Pickering, Agnes E. Stumpf, Violet M. Sullivan, Anna. Wallace, Alice. Watts, Martha D. Wolfson, Bennie. REPORT OF THE WAR TRADE BOARD. 447 IMPORT SECTION. Parker, Jllnnie, section chief. Clerks. Senior, Mildred B. Sterner, Jessalvn. Wills, Mary I. Zimmerman, Leola. Verifier. Sloan, Hazel B. Card, puncher. Sutton, Florence. TABULATION SECTION. Money, W. P.. section chief. Snorting machine operators. Bladen, Cecelia. Callahan, Catherine. Doyle, Ida. Downs, Dorothy V. Downing, Alma M. Evans, Myrtle. Gerhold, Henry R. Klinge, Hazel. Lee, Sophronia. Nelson, Hazel. Sullivan, Margaret. Tahulating machine operators. Gallagher, Pauline. Heitman, L. C. .Tames, Dorothy E. Koentz, C. H. McGill, Annabell. Mawson, Helen. Nellis, Myra. Price, Virginia Bell. Shaw. Roselia B. Filing clerics. Haven, Hannah. Peterson, Minnie K. Comptometer operator. Osborne. Florence W. Hagen, Frances. Kemp, Paul P. Lipschetz, Pauline. TYPING SECTION. McClure, J. L., section chief. Typists. Ambrose, Elizabeth. Babcoek, Dorothy W. Byrne, Claire M. Bryner, Pearl L. Cale. Ora. Caulton, Laura F. Chisolm, Mabel S. Davis, Fannie L. Denhani, Margaret. Feldman, Lottie. Hamiuaker, Katherine I. Hood, William E. Horn, Ruth. Jacquay, Clara. Johnson, Mary U. Lewis, Lydia G. Lowrey, Ethel O. McNamara, Mary E. Miller, Linnle B. Mitchel, Cumi. Nolan, Anne E. Nurnmberger, Helen M. O'Neill, Mary H. Pineo, Louise D. Rode, Martha A. Rosenbloom, Etta. Sipes, Bessie F. Tilghman, Sarah C. Williams, Mamie. Williams, Mary P. FILING SECTION. Cambre, Delia A., section chief. Clerks. Ashby, Goldie. Boe, Lydia. Brooks, Hattie C. Brown, Clara A. Carlin, Anna C. Clements, Dorothy B. Deardorff, Ethel I. Ferrell, Marie L. Hudd, Mary H. Jordan, Grace J. Link. Aster P. Lynch, Anna. McKeever, Elisa B. McNamara, Virginia. McGhee, Opal. McNeal, Florence. Martin, Bernadette A. Miller, Cecilia J. Moser, Mamie M. O'Brien, Margaret M. Parkinson, Helen M. Shand, Geraldine M. Thomas, Alberta B. Thompson, Inez R. Thornton, Mary L. Towle, .Tune M. 448 REPOET OF THE WAR TRADE BOARD. Wakeman, Doris L. Wilkin, Helen O. Williams, Helen. Williams, Mary S. Messengers. Beardniore, Mable. Eastbiirn, Mii-iam K. lehilian, Anna. EDITOEIAL SECTION. Morrison, William, section chief. Assistants. Denb}', Stephen F. Ullman, G. N. Appointees separated before the armistice or appointed after the armistice. Director : Reed, Lowell J. Acton, Paul C. .\dams, Hilda Mae. Albro, Edith G. Andrews, Marion Mae. Ashton, Helen A. Barber, Coralie R. Barber, Vincent J. Bennett, Mary 0. Bettis, William. Bibb, Walter P., jr. Billings, LilUe G. Blye, Reina N. Bright, Edwin L. Briscoe, Amelia V. Bromwell, Thelma A. Brothers, Kathleen E. Brown, Helen. Bryan, Grace A. Burch, Harriet E. Dent. Burdlne, Mary E. Burgess, Evelyn. Burton, Frances J. Cannon, Blanche G. Cannon, Mary E. Carroll, .Tohn. Carruthers, Ruth L. Carter, Ethel B. ("assell, Pauline. Causey, Winifred. Cervone, Mildred, r'hristensen, Esther. Cliristensen, Ruth. Christopher, Mercedes. Clark, Grace M. Clements, Faith. Cohen, Ella M. Cohen, Leonard J. CoUis, Ruby T. Cooper, Anna P. Cotton, Cornelia M. Coughlln, Dorothy W. Crawford, Mar.iorie. Creveling, Katherine A. Crogan, J. D. Crosthwaite, Ethel. Crowe, Dorothy M. Cummings, Rachel O. Davis, Edna K. Davis, Ivy Hilton. De Alba, Rose. Dellar, William E. Dellow, Florence E. Dixon, Helen M. Donaldson, Mabelle. Donovan, Catherine. Doswell, Vivian. Dowden, Eleanor C. Downs, Mary E. Dulaney, Martha. I>unavant, Sallie. Bichling, Mrs. Richard. Elliot, Albert. BUenbogen, Henry D. Faris, Corinne. Faust, Helen. Faust, Winifred. Fleming, Ellen. Foght, Margaret Hope. Gardes, George. Gardes, Henry W. Garrison, Laura B. Gendron, Louise M. Gorman, Alexander. Graham, Edith E. J. Graham, Florence. Gray, Marian. Green, Irene H. Greenhalgh, Marceil. Grimm, Mary K. Hockensmith, Bonnie L Hains, Ruth. Hamme, Annie J. Harris, Emma J. Hartranft, Julia H. Harvey, Geraldine. Hevener, John W. Hickman, Leila E. Hill, Edgar W. Hill, Margaret. Hilton, Rena O. Holland, Mildred. Holland, Ruth A. Hopkins, F. G. Hughes, .John H. Ingram, Frances F. Irving, Carrie B. Ives, Amy. Kissinger, .John. Kelso, Anna J. Kenny, Alice V. Kennon, Clara V. King, Donald. King, Paul C. Kingdon, A. C. KEPORT OF THE WAR TRADE BOARD. 449 Knight, Maude E. Lacid, Nina. Lambert, EUa H. La Salle, Mrs. Clan. Leffiers, Sam. Lehman, Delia. Leod, Francis D. Lewis, Flora D. Loler, Elizabeth W. McCalmont, Katharine E. McCarthy, Elizabeth. McDowell, Margaret. McGill, Ajonabel. MacEwen, G. M. McNey, Mary M. Marley, Mary L. Martin, Cecelia. Martin, Eva G. Mathers, Lillian E. Morse, Pellena F. Mudd, Esther. Mulford, Hunter P. Mulvogue, Mabel D. Munsinger, Emily M. Murphy, Doris J. Murphy, Helen M. Nelson, Violet. Nichols, Mabel C. Nolan, Margaret. O'Donnell, Josephine. Ogsbury, Charles R. O'Xell, Ida. Parker, Edith L. Penne, Anna. Petty, Bonnie B. Phillips, Enna E. Poston, Hazle R. Pyles, Marian. Rainey, Louise M. Ratclife, Ruby I. Reid, Isabel. Reilley, Regina. Reynolds, Cornelia M. Ricker, Ella V. Roberts, Bessie. Ruseiiweig, Charles L. Uykerd, Margaret E. Sanderson, Beulah. Saunders, Harriett. Scheff, Selma. Sears, Ruth JI. Sharp, Edith. Sims, AVilliam C. Sinrod, Nathan. Smith, Emily B. Smith, Eva D. Smith, Florence E. Smith, Helen E. Smith, Lester. Stewart, Elizabeth. Stewart, Paul W. Stonebraker, Edith. Stovall, Mattie E. Stovall, Nell. Tallant, Mary E. Tasker, Bessie M. Thomas, Grace. Thomas, Sylvester George. Thompson, Agnes C. Thyer, William H. Turnley, R. W. Uzzell, Carrie E. Walker, Maude. Walter, Caroline M. Weidenhammer, Hattie M. Welch, Mary J. Werner, Mae E. Whitaker, John S. White, Eva. Whittlesey, Dorothy T. Wood, Earl Edmond. Wright, Selina. BUREAU OF WAR TRADE INTELLIGENCE. PEKSONNEL ON NOVEMBER 11, 1918. Director : Paul Fuller, jr. Fuller, Paul, jr. Jefferson, .Tulia E., secretary. ASSISTANT DIRECTOK. Ely, Richard. Meyer, Grace, secretary. ASSISTANT DIKECTOE — OFFICE MANAGE- MENT AND PEESONNEL. Howell, Herbert H. Frothingham, Alice L., typist. Stears, A. L., assistant. Miller, Myrl O'Neal, typist. Payne, John, messenger. Ring, William C, messenger. 103584^20 30 ASSISTANT DIEECTOE — NEW YORK OFFICE. Bodman, George. Bolger, Anna T., typist. * Brasol, Boris L., confidential in- vestigator. Brooks, Irene, typist. Garfield, Ray R., stenographer. •Tenkins, Kezia E., stenographer. Listen, Florence, stenographer. Standen, Mary I., typist. Steiner, Lajos, assistant. REPKESENTATIVE VIOLATIONS COMMITTEE. Mack, H. W., chairman. Magruder, Lawson, secretary. Brawner, Sarah, typist. Brettle, Mildred, stenographer. Bruell, D. May, confidential junior . assistant. 450 REPOET OF THE WAR TRADE BOARD. Collins, Rose Mary, typist. Dunbar, Helen, typist. Fuller, Elizabeth, clerk. Hardenbergh, William P., jr., trade expert. Smith, Beulah, confidential junior assistant. Wilson, E. H., trade expert. ENEMY PEOPERTY DIVISION. Bakewell, A. O. Blaine, Margaret G., confidential junior assistant. Ficke, Florence E., stenographer. Garrett, Stella, confidential junior assistant. Genung, Charles H., assistant. Hunt, Nancy C, confidential jun- ior assistant. Wallerstein, Ruth C, confidential junior assistant. DIVISION OF EESEAKCH AND INVESTIGA- TION. Campbell, H. J., chief. Armstrong, Sinclair H., assistant. Butler, Marie, stenographer. Carter, Allen J., assistant. Creighton, John T., assistant. Emerson, Guy T., assistant. .Johnston, Lorena, typist. Lester, Ralph, confidential investi- gator. Paine, Charles 0., assistant. Richardson, Austin L., legal as- sistant. Scott, Henry R., assistant. DIVISION or CENSOESHIP AND COKEE- SPONDENCE. Schafl:, Norman. (a) Censorship. Adamson, Louise I., representative War Trade Board. Batchelder, Charles C, representa- tive. Crone, Frank L., assistant. Gordon, Arthur E., representative War Trade Board. Hoggsett, George, representative War Trade Board. Keller, Edwin, representatives War Trade Board. (&) Postal. Postley, Gilbert J., assistant. (c) Cahlc. Latting, Emerson, assistant. (d) Examination of correspondence. Atwater, Conway L., confidential junior assistant. Hall, Constance S., assistant. LISTING DIVISION. Enemy trade, confidential suspect, and cloaks list. Bingham, J. W. King, Lota M.j confidential junior as- sistant. Allen, Blanche, typist. Bartholomew, Pearl H., conflden tial investigator assistant. Bergen, Beatrice M., typist. Billings, Nellie M., typist. Brown, Dorothy, typist. Carlln, Leo, assistant. Ellis, Ruby Grey, clerk. Foster, B. O., confidential investi- gator. Gerber, Julia, typist. Gurley, Ann M., clerk. Halliday, Margaret Ann, typist. Hougham, Robert B., confidential examiner. Keating, Genevieve, typist. Schnebly, Merrill I., legal assistant. Simonton, James W., assistant. Sojka, Betty C, typist. Tanner, Ethel M., index and cata- logue clerk. EXAMINING DIVISION. Holt, H. G., chief. Fairbanks, H. P., assistant. (a) South America. Gardiner, Raynor M. Childs, Marjorie M., confidential junior assistant. Dod, Albert B., assistant. Keiser, Bernardine A., confidential junior assistant. Mosser, Katherine, confidential junior assistant. Smith. Norma E., confidential jun- ior assistant. Stearns, Douglas C, assistant. Voorhees, Frederic, confidential jun- ior assistant. Wildman, Anna L., confidential jun- ior assistant. Wilson, Beulah, typist. (6) Mexico. Lawrence, Schuyler, examiner. Shreve, C. Dudley, assistant. Bailey, Harry D., mesgen.ger. Barry, Marie M., clerk. Cottrell, Edith M., confidential jun- ior assistant. Green, Elizabeth D., clerk. Harmon, Ella M., clerk. Havens, Blanche, clerk. EEPOET OF THE WAK TEADE BOAKD. 451 Hill, Mabel M., confidential junior assistant. Lowrey, Sarah S., confidential jun- ior assistant. Murray, Rose, clerk. Wren. Marie, stenographer. (c) Xeic York and United States Pos- sessions. Patterson, E. L. Bailey, Durward F., confidential assistant. Baker, Anne D., assistant. Bell, Adelyn, clerk. Casey, Theresa A., stenographer. Coleman, Alex W., editorial as- sistant. Edwards, Walter A., confidential adviser and examiner. Emory, Margaret A., stenographer. Essling, Cordelia, clerk. Gillman, Juanita H., assistant. Hale, James P., confidential inves- tigator and examiner. Hamilton, Erema, assistant. Leavy, Sarah, confidential junior assistant. Lockwood, Helen, assistant. Lydecker, Mary Guernsey, confiden- tial assistant. Malcolm, Jessie C, confidential junior assistant. Marshall, Thomas M., assistant. Martin, Charlotte, clerk. Menniger, Anna C., clerk. Moore, Nelle B., clerk. Norris, Margaret, confidential jun- ior assistant. Peck, Winifred K., confidential junior assistant. Pratt, Charles, assistant. Roper, Grace, assistant. Shartle, Marion C. C, confidential junior assistant. Shea, Gertrude D., stenographer. Stadel, Antoinette, typist. Stewart, Lois, confidential junior assistant. Sweet, James Allen, confidential examiner and adviser. Taggert, Etta Louise, confidential junior assistant. Vreeland, Margaret L., confidential junior assistant. Wallace, Harry R., assistant. White, Priscilla R., assistant. (d) Central America. Mitchell, F. J. R. Brooks, Ethel M., stenographer. Deneen, Anna M., typist. Huntington, Katherine, confiden- tial junior assistant. Johnson, Mary E., confidential junior assistant. Knight, Minnie A., clerk. McLeod, Archibald A., assistant examiner. Shanklin, Martha G., clerk. Sullivan, Mary L., clerk. Tobias, Martha W., clerk. Tourtellot, Frances A., confidential junior assistant. (e) Foreign Countries. Nichols, A. B. Allen, Irene M., confidential junior assistant. Greacen, Joseph W., examiner. Gudger, Genevieve W., confiden- tial junior assistant. Haggerty, Scotia S., confidential junior assistant. Klein, Grace L., confidential junior assistant. Lindley, Charles A., assistant. Logan, Lotta W., clerk. Penick, Mattie C, typist. Piatt, Adele, clerk. Vincent, Mildred C, confidential junior assistant. Walcott, Mary A., clerk. Webb, Mary Murtha, confidential junior assistant. (if) Cuba. Hlnrlchs, F. S., examiner. Davis, Elizabeth M., typist. Foley, Francis X., messenger. Stuller, Florence B., clerk. Tipton, Martha L., clerk. Imports. Life, Frank M. Costello, Marguerite L., clerk. Dewey, Katherine, clerk. Diamond, Isabella S., confidential junior assistant. Frazee, Lowell, clerk. Hodges, Annie M., typist. McClellan, J. Harriet, clerk. Thomas, Arthur F., assistant. Toms, Bernice, assistant. Valgren, Margaret S., assistant. Wilkie, Julia E., assistant. Stenographic Section. Fox, Anna Louise. Barnhartt, Eva S., stenographer. Baumblatt, Ruth, stenographer. Bradley, W. B., typist. Brettle, Mildred F., stenographer. Brown, Ethel G., typist. Burrell, Beulah V., stenographer. Cotter, Elizabeth D., stenographer. Haldimand, Lulu B., stenographer. Hethrington, Beulah, stenog- rapher. Lansing, Edna C, stenographer. Lyons, Loretto, typist. Mayer, Anna, typist. 452 REPORT or THE WAR TRADE BOARD. Newell, Alphonso JI., stenographer. Redlieffer, Emerette R., typist. Roach, Mary C, typist. Smith, Ruth C, steaographer. Thacker, Bernice W., stenographer. Vasbinder, Ellen, typist. Watkins, Esther B., stenographer. Weaver, Cleta, stenograpli-er. Tounp-, Effie. stenographer. Zaeheiss, Emaline, stenographer. SrESTITL'TE FIKMS. Walker, Cecil T. Donnan, Dorothea W., clerk. Hanauer, Ida M., clerk. Herman, Eliza Jane, clerk. Hiunant, Esther W., clerk. Kerns, Olive H., clerk. Tompkins, Edith C, clerk. SPANISH DIVISION. Crosby, .J. P., examiner. Bailey, Florence M.. stenographer. Bounds, Mary E., clerk. Doyle, Miriam, stenographer. Entvvistle, Miriam, typist. Kahler, Henry C, assistant. Kelly, Ambrose .!., assistant. Luquer. Lynch, assistant. Noyes, Martha, assistant. CITIES WEST OF THE MISSISSIPPI. Bowler, R. B., examiner. Washington. .John A,, messenger. Miller, R. B. Doorley. .June, typist. De Jarnette. Gabriel, clerk. Flanigen, .Jessy, confidential jun- ior assistant. Peters, Dora, typist. Reddy. Rose M.. clerk. Rees, D. May, typist. Walker. Bernice, typist. WAR TEADE IN'TELLIGENCE. Reception room. Hollingsworth, Luisa A., confidential junior assistant. Schnell, Nina M., typist. Truax, Clara P., confidential jun- ior assistant. Cable room. Burgess. Helen L.. stenographer. Anderson. Mamie, typist. Daugherty. Arline, clerk. Delavan, AV. Gee, jr., messenger. Hicks, Edna Jl.. typist. Parker, Thomas Henry, messenger. Smith, Thelma, typist. Thompson. Howard, messenger. Williams. James O., jr., messenger. EDITING AND C.AKDING DIVISION. (a) Edifiiiff Section. Richards, H. S. Adams, A. L.. law clerk. Allen, Louis F., assistant. Barnhlll, .Josephine, cterk. Boyclen. Victor H., assistant. Bowker, Kathleen, confidential junior assistant. Bracegirdle, Margaret M., confi- dential junior assistant. Dearborn, Frank A., assistant edi- tor. DeBokker, Leander J., confidential editorial clerk. Doran, Cecelia A., law clerk. DuBois, A. G., editorial assistant. Farmer, Mary, confidential edi- torial research assistant. Follen, Elizabeth A., clerk. Fo.ster, Josephine R., as.sistant. Foster, O. A., assistant. Gregory, Emily Ray, confidential research assistant. Hall, Josephine, clerk. Holladay, Shirley J., assistant. Lane, Thomas P., confidential In- vestigator. Little, Sterling B., typist. Messier, Harriet F., typist. Quigley, Richard J., clerk. Ralnbolt, Victor, confidential in- vestigator. Randolph, Charles C, assistant editor. Richards, B. X., assistant. Rose, Clara B., clerk. Russell, Katherine, typist. Smith, Ruth C, stenographer. Snow, Louis F., assistant. Theaker, Anna R., clerk. Weeks, Vina L., typist. Wlckham, J. D., assistant. (6) Stenographic Section. Wheeler, Helen Ellis. Aldrich. Margaret, typist. Barnard, Ethel James, stenog- rapher. Barrett, Marguerite, typist. Bastian, Viola L., typist. Bean, Maude I., stenographer. Berry, Helen M., typist. Burton, Irene, tj'pist. Bowman, Frank E.. typist. Burnstead, D. E., typist. Campfield, Anna B., typist. Cayouette. Leontlne, stenographer. Cmilon, Daisy, stenographer. Cooko, Maude, typist. Cramer, Mary E., typist. Darling. Haisel, stenographer. Davidson, Anna Mae, stenogra- pher. EEPORT OF THE WAR TRADE BOARD. 453 Davis, Marlon, stenographer. Desha, Agnes M., stenographer. DeVaney, Marie A., typist. Dunkley, Clara E., typist. DuVall, Mabel M., typist. Eastburn, Rita M., typist. Faye, Anna E., typist. Feldman, MoUye, typist. Finley, Hannah E., tvpist. Folse, Sadie J., typist. Forsgren, Grace, stenographer. Fox, M. Louise, typi.st. Frederici. Louise M., clerk. Frederick, Edith M.. stenographer. Gilligan, Dorothea C, stenogra- pher. Goldman, Sarah D., typist. Hannnond, Christine, stenogra- pher. Harris, Helen E., stenographer. Hoffman, Elsie V., typist. Houchen, Mildred E., typist. Hutton, Anna, typist. Rimmel, Esther B., stenographer. Lane, I. May, stenographer. I.«ary. Mary L., stenographer. Leslie, Ruth C, typist. Lewis, Harriet W., typist. Lewis, Helen, stenographer. Leonard, Esther, stenographer. JLePreux, Marie J., typist. . Libby, JIaude H., typist. McMichael, Mabel, stenographer. Malone, Mary, typist. Maloney. K. Madeline, typist. Martin. Frances B., typist. Miller, Adelheid C, typist. Miller, Alice E., typist. Mollott, Esther, stenographer. Morrison, Erin, typist. Newlon, L. J., typist. Nichols, Florence, typist. Norfleet, Helen D., typist. Paige; Louise, typist. Pittman, Genevieve M., typist. Pitts, Gertrude M., stenographer. Pitts, Mabel C, stenographer. Plummer, Hazel, stenographer. Richards, Stella, typist. Roberts, Miriam, stenographer. Roe, Eunice V., typist. Rumbaugh, Ruth, stenographer. Schrepfer, Bertha, typist. Shafer, Ellen J., stenographer. Shotwell, Ouida, stenographer. Smith, Jennie S., stenographer. Soady, Eunice, stenographer. Speers, Edith B., typist. Stowe, Gladys M., stenographer. Straughan, Marion L., typist. Tell, Mary F., stenographer. Thurston, Llewella S., stenogra- pher. Tuthill, Jane E., typist. Voegtlin, Mabel, typist. Wohlfahrt, Clara M., stenogra- pher. Woods, Genevieve P., typist. AVright, Edna, typist. Young, Edna, typist. Young, Evelyn G., typist. (c) DupUcatiny Section. Heckman, Harvey M. Blair, Edith L., clerk. Blandford, Agnes C, clerk. Bodmer, llarjorie, clerk. Brooks, Isabelle G., clerk. Chrissinger, Besse G., clerk. Cook, Faustlne D., clerk. Duddy, Rose M., clerk. Evans, Archie, messenger. Gaylord, Mabel V., clerk. Goffney, Edward, messenger. Gregory, Ethel M., clerk. Griffith, JIayme L., clerk. Grimes, Mary, typist. Haberman, Abel, messenger. Heath, A. C, clerk. Holaway, Belle, clerk. Kline, Alecia, clerk. Lee, John P., duplicator operator. Lowe, N. Olive, clerk. JI(iore, Georgie, typist. Pegler, Ethel, clerk. Plant, Paul J., duplicator oper- ator. Porter, Harold, messenger. Price, Elmer E., duplicator oper- ator. Ray, Horace, messenger. Ray, Ted, messenger. Raymond, Victor, messenger. Ready, George, messenger. Roberts, Elta C, clerk. Robertson, Sarah C, clerk. Ryland, Constance M., clerk. Scott, Wada C, clerk. Shelton, Ora B., clerk. Shreve, Mary B., clerk. Taylor, Thomas, messenger. Tillett, P. O., duplicator operator. Tipton, Martha L., clerk. Stannard, Annette C, clerk. Wakeford, Mary W., clerk. Walters, John L.. messenger. Wilkinson, T. A., clerk. Filing room. Bowes, Mrs. L. B., chief of records. Abel, Carrie F., clerk. Ballard, Abbie, clerk. Bowes, Mary, messenger. Boyce, Eunice E., clerk. Colvln, Edith, typist. Elliott, Edward, messenger. Folliard, Alphonsus P., messenger.. Fowler, Alice C, typist. Glldea, Bertha H., typist. Hampton, Eva M., typist. Hawkins, Maude R., typist. Kramm, Marie C, typist. Lewallen, Mary E., clerk. 454 REPORT OF THE WAR TRADE BOARD. McCabe, Mary L., clerk. McClure, Lucretia, confidential junior assistant. McLemore, Harriet, clerk. Murname, Bertha, confidential junior assistant. Pittman, Lolo, clerk. Quinn, Mary Helen, typist. Rouse, Myrtle, clerk. Tanner, Maude R., typist. Thompson, Neely K., clerk. General Typist Division. Lane, Dixie. Baker, Kathleen, typist. Ball, Louise, typist. Church, Ethel, typist. Coffey, Nora G., typist. Dankmeyer, Eleanor L., typist. Dowell, Jlaude I., typist. Gorman, Catherine, typist. Hamer, Fayne, typist. Hashaugh, Clara, typist. Hopkins, Florence E., typist. Hutchinson, Helen L., typist. Johnson, Roberta M., typist. Klein, Catherine, typist. Levin, Anna B., typist. Luce, Margaret M., typist. Lyles, Dorothy C, typist. Mlnick, Marguerite M., typist. Orlani, Annie, typist. Spottswood, Grace B., typist. Wilson, Mary West, typist. Wylie, Helene A., typist. Baltimore representative. Zollinger, Harvey K. Seattle representative. Hupp, Glenn C. San Francisco representative. Stewart, .lohn L. Confldeiitial consignor list. Orr, George P., confidential legal as- sistant. Appointees separated l>efore the armistice or appointed after the armistice. Aberg, William J. P. Aigler, Ralph W. Aitken, John. Allen, Mary. Allen, Victoria F. Allis, Lillian. Ames, Harold B. Atwater, Judith P. Austin, J. Bliss. Ayers, William H. Bachus, R. C. Baldvrin, Margaret L. Ballon, Percy S. Barbey, Pierre L. Barck, Helen E. Barlow, A. D. Batton, Zella. Berlinghoff, Florence B. Berman, Norman N. Beyer, Katherine S. Biggins, Katherine D. Bingham, Charles W. Bingham, Florence C. Birthright, William J. Blessner, Henry W. Bodman, Louise. Bramhall, Frederick D. Brengel, Bessie. Broad, Frank W. Brown, Clara A. Brown, George T. Brown, Raymond G. Burrough, Kemlck D. Cahill, Ethel D. Calhoun, Francis A. Campbell, William H. Carpenter, Ruth A. C. Chamberlain, Grace B. Chapman, Laura. Clark, Alice H. Clary, Agnes. Gierke, Philip N. Colvin, Bonnie B. Comtois, Helen E. Cousins, George. Cowan, John Harding. Crager, George C. Crawford, Estelle. Curry, Lloyd M. Curtln, Eugene. Davenport, Ruth. DeBuys, Wallace W. Deck, Joe V. Delay, Edward V. Dervin, Anna. Diamondstein, Sidney B. Dickens, Ralph M. Dillon, Daniel. Doughty, Isabella P. Downey, Vincent P. Drake, Nelle. Dutcher, Isabelle. Eastman, Charles R. Elliott, Janet. Bmmert, Katharine Clyde. Esch, Evelyn. Evans, Elsie. Febes, Francis H. Ferbstein, L. J. Fisher, Bessie. Fisher, Genevieve R. Fitzgerald, Leo J. Fleck, Ada M. Foley, William A. D. REPORT OF THE WAR TRADE BOARD. 455 Foss, Edgar B. Foster, A. Key. Foster, Susie. Frank, Mary. Gault, Belle. Gavit, Bernard O. Gilchrist, E. Wilds. Gilliss, Myrtle. Gilson, Annie E. Green, John Raeburn. Greene, Harry R. Greene, Robert E. Greenwood, Mabel. Grindley, Ambrose L. Gross, Earle 0. Haddon, Hamilton. Haig, Charles C. Hall, Dixon W. Hamilton, Belle O. Hand, Hulda S. Harman, Lucy B. Hatton, Zella. Haverty, John P. Hawes, Laura. Herbruck, AVendell. Hibbs, Edwin J. Hinrichs, Elizabeth 0. Hoggsett, George A. Holbrook, John. Holland, M. Louise. Hoogs, Margaret W. Hoston, Charles A. Howard, Lester A. Howe, Louise M. Hubbard, G. S. Hubbard, Mrs. G. S. Hughes, Annette B. Irving, Louis de P. .Tacoby, Belle. Jenkins, Florence. .Johnson, Lillian O. Johnston, Franklin. Jones, Constance B. Jones, Pembroke. Joseph, Howard. Kain, Donald E. Keedy, Edwin R. Keever, Hazel. Kelly, Lucille M. Kirchner, Albert R. Kissel, W. Thorn. Lacey, Margaret. Lanahan, Loyola. Lane, David E. Lane, Dixie M. Lee, Theodore E. Leffler, Paul E. Lewis, A., jr. Liebert, Anna. Lingle, Albert F. Little, Virginia K. Lloyd, Hortense. Lloyd, Malcolm, jr. Lohmeyer, Edythe F. Loomis, John V. Love, Willie B. Lowe, Herbert. Lyons, Marion R. McCarty, Rachel. McCaskill, Oliver L. McDonald, John G. MacDonald, Mary Ella. McDonnell, Bernard J. McGowan, Joseph. Mclntyre, Kathryn. McLaren, Julia E. McNamee, Francis A. Madero, Maude. Maloy, Dorothy. Manders, Beulah. Marchant, Paul C. Marriott, Crittenden. Martin, Mary M. Matheu, Ignasio M. Matteson, Genevie E. Mayer, Carmen L. Means, Philip A. Mechling, Florence A. Menefee, Dorothy R. Moen, Edward C. Mumford, Harold E. Nay, Daisy W. Nelson, Gustin Macallister Nettleton, George M. Nichols, James K. O'Donaghue, Martin P. Oliphant, Herman B. Osborne, Lemuel. Page, A. S. Palmer, Mabel E. Park, Katherine L. Parker, Willard. Parrish, James C. Pendleton, Charles E. Phllbrook, Mary. Phillippe, Ralph C. Plum, Mary Gaddis. Presler, Logan. Priest, Florence A. Proctor, Laura G. Proctor, Thelma G. Quinn, Clarence W. Ranew, Annie C. Reiley, Zula. Reinhart, Dexter K. Rhoades, Stephen P. Y. Ridgely, W. R. Riley, Armin W. Roach, Charles E. Robertson, Irving. Robinson, Edith F. Rogers, Thomas H. Ross, Lawrence B. Ross, Samuel. Roys, Frank S. Rundell, Oliver S. Ricketts, Kate O. Richardson, Austin L. Stearns, Douglas C. Stewart, John L. Saxton, Lillian M. Schwab, Henrietta. Seabury, Frida S. Selvey, Leland I. 456 EEPOKT OF THE WAR TBADE BOAED. Shepherd, Queen Lois. Shirk, Delia. Sidwell, Paul. Slater, WiUlam A., jr. Smith, Earl F. Smith, Frederick D. Smith, Halton. Snowden, Grady W. Southgate, Richard B. Spaeth, Edith. Spencer, Seth S., jr. Staff, Charles B. Stephenson, Sarah. Sweeney, Mary B. Te Linde, Bichard W. Thompson, Henry. Tuttle, Elbert P. Van Ness, J. G. Wade, Coradel. Warland, William S. Weeks, Richard F. West,' Dorothy. West, Gordon L. Wlielchel, Louise. White, Nelson. Whltmeyer, Viola. Wlekersham, George W. Wilkinson, Stephen A. Williams, H. N. Wilson, Katherine A. Winslow, Kathryn S. Wohlfahrt, Clara M. Wolfe, Stanley L. Worthington, Marg. Walker, Robert G. ZoUman, Carl. BTJEEAXr or FOREIGN AGENTS. PERSONNEL ON NOVEMBER 11, 191S. Director : Chester Lloyd Jones. Jones, Chester Lloyd. Parker, Esther G., secretary. ASSISTANT DIBECTOE. Stewart, John B. ABSTKACTOB. Ambler, Byron S. OFFICE MANAGER. Affleck, Madge. FIUES. Fisher, Iva A., file clerk. Van Winkle, Corinne C. assistant. STEXOGRAPHERS AND TYPISTS. Cole, Louise D., typist. Condron, Gertrude C, stenog- rapher. "Gerety, Jennie E., typist. Kurtz, Helen 51., typist. Langdon, Nannie D., stenographer. Moore, Eva J., stenographer. Rodgers, Grace E., typist. FOREIGN AGENTS. (o) Argentina — Buenos Aires. Burnett, Stephen S. Barrett, Robert S. Brown, Edwin Paul. Lancaster, L. L. Noll, Bernard H. (ft) Bolivia — La Paz. O'Brien, William D. (c) Brazil — Rio de Janeiro. Amory, Henry R. Malampre, R. L. St. Onge, Joseph A. ((?) Canarij Islands — Las Palmas. Parr, Charles McKew. (e) Chile — Valparaiso. Kizer, Edwin D. (f) China — {1) Shanghai. Denby, Charles. Cherington, E. N. (2) Peking. Lincoln, Chester. (g) Cuba — Havana. Morgan, Henry H. Ajui, Pedro. Alden, A. F. Barbour, Thomas. Blunt, C. C. Brecht, H. E. Brooks, W. S. Depew, Chauncey M., jr. Edwards, R. E. Ellis, Florence B. Estrada, Jose. Hendrix, E. C. Leal, P. S. REPOET OF THE WAR TEADB BOAED. 457 Mayol, Jeronimo. McAllister, H. L. Nieman, L. O'Neill, C. S. O'Neill, E. D. O'Neill, J. C. Pollack, Phillip. Quijano, Antonio. Boeder, Virginia. Steinhart, Percy. Valero, George. Walter, W. W. Wilcox, Walter D. (h) Denmark — Copenhagen. Hurley, George. Thompson, Erwin W. Cheney, Phil S. Hogan, Charles P. McQuaid, .Tohn Thomas. Norris, Everett D. ( ;■ ) Ecuador — Quito. Smith, Howard L. (i) England — London. Sheldon, L. P. Bigelow, C. Willard. Brewster, Robert S. Crutchfield, David. Daniel, Edward M. Day, Julian. Doubleday, Felix D. Frothingham, Donald. Frothingham, Robert. Loomis, John U. Morgan, Stokley. Parmelee, Maurice. Slattery, William L. Thayer, William W. Alexander, Catherine. Brown. Emily. Buck, Hilda C. E. Burnside, Emma T. Burnside, Margaret A. Burnside, Mary. Cole, Thomas J. Cornford, Bertha. Couzens, Herbert W. Henderson, Suzanne. Horsfall, Elwy. Hudson, Audrey O. Kennard, A. S. Lockhart, Leonard P. Lovesay, H. G. Mainwaring, Aileen F. E. Morfey, Maggie A. O-sborne, Mabel A. PhiUips, Ethel. Powell, Gladys. Roy, Mary. Shepherd, Gertrude. Stuart, George A. Stuart, William P. A. Sturgess, E. Elizabeth. Sugar, Rhoda E. Tillstone, W. Rogers. Walford, Edith. Watt, Isobel. Williams, Eva M. ( k ) France — Paris. McFadden, George. Barnaud, Albert J. Burke, Harry C. Dangaix, W. J. Delano, AVilliam. Stetson, Clarence C. Turner, James Henry. Bailey, Mrs. N. E. D. Barrier, M. Belson, M. A. Brancier, M. Brantingham, F. E. Derby, J. Gonnet, A. Hourdou, Miss Y. Kunzeman. John J. Lamblot, F. Lemay, Albert E. Lennon, William P. Logue, Karl H. Mackay, J. Michael, Isabelle. Martin, Mme. E. (J) Greece — Athens. Weddell, Alexander W. Fontrier, Pierre. Longinideu, Eleutheria A. Hatzopoulou, Penelope S. (m) Ouatemala — Chiatenia,la City. Deverall, William A. (n) Italy — Rome. Stewart, W. A. W. Cane, Joseph. Leland, Louis P. O'Leary, John F. (0) Japan — (1) Tokyo. Rabbitt, James A. Martin, Samuel L. Wear, Floyd G. (2) Koie. Reardon, Edward B. Wait, W. W. (3) Yokohama. Weimer, J. G. (p) Java — Batavia. Rairden, Percy W. 458 KEPORT OF THE WAR TRADE BOAKD. (q) Mexico — Mexico City. Clay, Cassius M. (r) Norway — Christiania. Dye, Alexander V. Beckerlegge, Bernard. Bernhoft, H. F. Coflin, Howard. Craig, Elizabeth L. Ewing, Alex. Ewing, .lohn Boyd. Fjeld, Alvin L. Holmboe, Nora. (s) Peru — Lima. Coombs, William H. (t) Porto Rico — San Juan. Jloore, Hayden L. Rubio, Alejandro. (u) Portugal — Lisbon. Carroll, Thomas J. .Taner, B. I. Dupin, Pedro, .lacqiiet, Pierre. Mello, Antonio F. Moreira, J. J. (v) Russia — (1) Archangel. Ciile, Felix. (2) Vladivostok. Heid, Augnst. Warland, W. S. (iv) Spain — (J) Madrid. Chadbourne, W. A. Ervin, Spencer. Hardy, D. Heywood. Xoyes, Henry R. Rickard, Joachim D. Smith, Alfred G. Elcaide, Miss. Alvarez, Cruz R. Bennett, Hilario F. Bland, Miss. Boyle, Mrs. Cardona, R. Byster, Leonard L. Grimes, Joseph W. Homan, Miss. Langridge, Mrs. Maldenado, Joseph E. Martinez, Manuel. Navarro, Rafael Lopez. Ochoa, Joaquin. Ribero, Carlos. Way, Buel K. Wood, Oliver G. (2) Barcelona. Harrell, David. Smith, Preston M. Alonzo, Jose G. de Emilio, Ignacio. Fulgenzi, Benjamin. (x) Sa-eden — Stockholm. Owen, William H. Aberg, William J. P. AJQderson, Robert. Coolidge, A. C. Demes, Francis B. Jones, Robert M. Schlaifer, Maurice E. Swanson, Roy S. (y) Swit-erland — (1) Berne. Dresel, Ellis L. Heck, Lewis. Ki-eissl, Hans Georg. Picard, Andre L. Clark, Edgar H. Lister, Lucy. Medofsky, Morris. Wilton, Doris. (2) Basel. Zieseniss. C. F. Otto. (z) The Netherlands — The Hague. Edwards, Paul L. Bruske, A. Clark, Hinman Holden. Appointees separated before the armistice or appointed after the armistice. Acting Director : Kirby, Gustavus. Ames, Edward Winslow (Nicaragua, Honduras and Guatemala). Bard, Claude M. Blount, Emma G. Davis, Betty. Deck, Elmer W . Ednionston, Alice G. Fischer, Walter. Heald, Mary S. Hotchkiss, Stuart (London). Humphreys, Florence. Heingartner, Ruth (Berne, Switzer- land). Lennon, William P. (Berne, Switzer- land). Leith, Charles Kenneth. REPORT OF THE WAR TRADE BOARD. 459 Lowell, Josephine W. McLaury, Donald B. Manclerfeld, Bina. Nolan, Leo J. Owen, W. H. (Copenhagen). Parr, C. M. Rowley, Marie C. Stowell, BUery 0. Twyinan, Robert Joseph (Cuba). Wilson, Richard T. Wohnnn, Leo. Zantzinger, C. C. (Stockholm, Sweden). BTTEEAIT OF EXPORTS. PERSON'MEL ON NOVEMBER 11, Director : 0. A. Richards. Richards, C. A. Elliott, C. S., secretary. Bigwood, Ella P., stenographer. Claycomb, Sadie V., stenographer. Horiie, John, assistant. Lane, John T., messenger. ASSISTANT TO UIKECTOR. Bartlett, C. G. Acuif, Fieldon, clerk. Binswanger, Samuel, assistant. Frothingham, W. H., assistant. Metzer, Christie, typist. Rigby, George R., assistant. Slaybaugh, Eva, typist. Steinberg, Pearl, clerk. ASSISTANT DIKECTOK. McCutcheon. V. H. Costln, Cecil, typist. Grandy, Jessie, .stenographer. Herrity, Jane, stenographer. Jolls, Evelyn, clerk. Nowlin, W. R., night stenogra- pher. Shea, Virginia, stenographer. DIVISION or EEGISTKY AND ISSITE. Root. F. T. Brady, Lucille, stenographer. Cole, Emma J., clerk. Coleman, Nellie, clerk. Finley, Lois E., clerk. Ingram, Eleanor, stenographer. AVorkman, Delia, clerk. KAC LICENSES. Burrows, A. A. Ranisdell, Morton, assistant. Bird, Rebecca, stenographer. Brown, Adna D., assistant. Clift, Linda, typist. Dobbin, Walter R., assistant. Kern, Laura J., stenographer. Russell. Mary C, typist. Swaine, Christine, typist. Young, Ethel I., stenographer. PRESS NOTICES AND GENERAL INSTRUCTIONS. Tracy, J. E. Rutherford, ilary E., secretary. Grandy, C. B., assistant. O'Connor, Robert, stenographer. Kennerly, Clarence, correspond- ence. Hammer, Sara H., typist. Realty, Ella, typist. McClure, May, stenographer. Jleelian, Lillian H., typist. Seckendorf, Helen R., stenogra- pher. STATE DEPARTMENT AND COMMUNICA- TIONS. Fairbanks, W. L. Kerwin, Walter J., assistant. Allen, Edith F., stenographer. Forbes, Irene, messenger. Henry, Pearl B., stenographer. Stitt, Marion J., stenographer. Vail, Vera I., typist. MEMBER VIOLATIONS COMMITTEE. Hardenbergh, W. P. CODIFICATION AND RECORDS. Van Dyke, E. W. Boone, Vera E., stenographer. Fisher, Florence, indexer. Holmes, Lieze, file clerk. O'Brien, Janet, clerk. LIAISON OFFICER W.iB INDUSTRIES BOARD. Home, F. R. Beahra, Sara, stenographer. Auld, E. W. ALLOTMENTS. COBIPLAINTS. Dickson, F. S. Benton, Hazel, stenographer. Bondurant, Ruth, typist. Bruce, B. M.. assistant. Coleman, Helen, stenographer. 460 BEPOKT OF THE WAH TRADE BOARD. Cook, Keely, assistant. Ham, Mary, stenographer. Kirsrhner, S., assistant. (I'Neill, Ronald, assistant. Quinn, Cannie, stenograplier. OFFICE MANAGER. ileares, L. H. Bird, Margaret, stenograplier. Braisted, Eleanor, typist. Cooperman, Elizabeth, typist, ileiklejohn, Helen, typist. Wiener, Beatrice, stenographer. TKADE ADVISEKS. (0) iLovuKj-picture film and caustic soda. Albertson, E. J. Foley, Florence E., stenographer. Gluckstein, Fannie, clerk. Groover, Minnie T., clerk. Kettelson, Mildred, ' stenographer. Long. Roy C, clerk. ilcGovern, Mary A., typist. McNalley, Clare, clerk. Reinhart, Charlotte, clerk. Solomon, James G., assistant. (&) Chemicals. Mitchell, A. S. Xoble, R. P., chemist. Bondy, E. E., assistant. Franklin, B. R., chemist. Griffith, C. W., assistant. Hatton, Willie, clerk. Krieg, Frieda, stenographer. MacGregor, Martha, typist. Miller, Laura, stenographer. Price, Bess, typist. Roat, Alice M., typist. Sampson, Lela M., stenographer. Yeatman, Daniel A., assistant. (c) Cotton. Pickard, E. T. Stopckel, Arthur, expert. Heim-ich, Fred W., assistant. Beans, Alma, typist. Brigham, Clara, typist. Erixon, Margaret, stenographer. Hugglns, Lulu P., clerk. (d) Coal and oil. Crane, W. E. .Johnson, Elsie O., stenographer. (e) Electrical machinery. Curtis, H. L. (f) Food. Chatfleld, F. L. Lawrence, A. W.,, assistant. Anderson, Bessie, typist. Burdick, Genevieve, typist. ClifCord, Corrine, messenger. Dennlson, A. G., assistant. Dlx, T. C. R., assistant. Dunlop, Dorothea, stenographer. Flick, Joyce, typist. Frame, Clara L., stenographer. Galbraith, Edith, clerk. Hebel, P. K., assistant. House, lona M., typist. Jones, Agatha G., stenographer. Lindsay, Fanny, clerk. Owen, Carmen M., clerk. Rich, C. F., assistant. Wilkinson, Ethel, stenographer. (g) Gold, platinum, etc. de Raismes, R. E. Dumont, R. H., stenographer. Greulich, Edith, stenographer. Livingston, Charles, assistant. (li) Arms, ammunition, and hardware. Bates, AV. H. Delano, Alice D., stenographer. Ingraham, Amy B., stenographer. Smith, Franklin H., assistant. Weitzell, Mary E., typist. ((■) Leather. Aborn, F. L. Colford, Ethel M., stenographer. Du Bose, Isabel S., clerk. Gaynor, .Janet R., typist. Ireland, Carrie, clerk. Levinson, Ida, clerk. Milliren, Mary E., clerk. Murphy, Abigail T., clerk. Neweombs, Marion, clerk. Powell, Agnes, clerk. Rothschild, Lena, typist. Shaw, Ellen C, clerk. (/) Machines, tools, etc. Vandyck. J. R. Blackwell, Opie. clerk. Hunt, S. Poster, assistant. Pierce, Amanda S., clerk. Powell, Jessica H., clerk. See, Alva B., assistant. Whitcomb, Preston, assistant. Williams, Maude, stenographer. Wittner, Edith J., stenographer. (1-) Metals and mining machinery. Thomson, S. C. Burgoyne, Nellie, typist. MacChesney, Alice, typist. REPORT OF THE WAR TRADE BOARD. 461 (I) Rubber, mica, and asbestos. Warner, Charles. Quirk, Florence, stenographer. (m) Steel. Parker, J. A. Van Cleve. N. W., assistant. Colford, Margaret M., clerk. Cranraer, Beulah L., stenographer. Flanagan, Lola W., typist. Gains, Phoebe R., typist. Gibbs, George, expert. Gray, Lorcy, stenographer. Harper, M. M., expert. Jones, Percival W., assistant. Kessler, Clara, typist. Leavitt, Lllla C, stenographer. Oas, Borghlld K., typist. Rawlings, Charles H., assistant. Simmerman, Marguerite, typist. Solomon, Madeline, typist. Steiner, Mary R., typist. Thayer, Josephine, typist. Whalen, Virginia, typist. Wilson, Eleanor G., stenographer. Winslow, Ethlyn C, typist. (n) Tin. Zaring, G. W. McCray, Howard B., assistant. Messersmith, Eva, stenographer. Perkins, Frances, typist. Tilly, Ella P., stenographer. Webb, Hatty H., clerk. (o) Wood and paper. WoodhuU, J. C. Hllleary, Eleanor, messenger. Levlnson, Ida, stenographer. Header, Nora, typist. Sclmieder, Verna, typist. (p) Wool. Cooper, Michael J. Cameron, Lula B., clerk. Lyons, Anna D., typist. Nolan, Frank J., assistant. Roberts, lona B., typist. (g) Semp, jute, and linen. Pratt, A. K. Dietrich, Laura R., clerk. Joyce, Blanche M., stenographer. Mills, Ifla L., .stenographer. SchellinKer, Beulah, typist. Thorndlck, Grace, stenographer. Wilson, Louise T., stenographer. Young, Grace M., stenographer. TRADE DISTRIBUTORS. (a) Canada and Africa. Denny, C. B. Allen, Grace, clerk. Colman, Nellie, typist. Howell, Elbert B., clerk. Kramer, Russell H,, assistant. Prout, Mary F., typist. Walton, Ada M., clerk. (6) East coast of South America. Durikerson, O. Johnson, Mary B,, assistant. King, Rachel. Mills, Katie R., stenographer. Smith, Sarah, stenographer. (c) Cuba. Wardall, R. H. Blackistone, Minnie, typist. Daniel, William, assistant. Goodman, Alicia, clerk. Perkins, Kathleen, clerk. Rieber, Rena, clerk. Slaughter, Hattie, typist. id) Great Britain, France, Italy, and Belgvum. Gutman, M. C. Plerson, Vance, assistant. Coddington, Laura, typist. Dorgan, Stella M., stenographer. Dunton, Margarie, stenographer. Flammer, Helen S., clerk. Gordon, IJ'lora A., stenographer. Hall, Edyth E., typist. Henaughan, Mary E., clerk. Hennion, Martina A., typist. Jones, Katherlne, stenographer. Levin, Patricia, stenographer. MacBrInn, Minnie F., typist. Smith, Anna BI., typist. (e) Oreece, Denmark, Iceland, and Faroe Islands. Pfahler, A. E. (f) Holland. Clayton, C. C. Grodzicka, Sophia, stenographer. ((/) China and -Japan. Kellogg, A. G. Leavitt, LUla C, stenographer. Lloyd, .John F., assistant. Norwood. Ruth, stenographer. Peterson, Charles, assistant. Sullivan, Ellon, stenographer. (h) Mexico. Butler, S. L. Henry, Ethel J., typist. 462 KEPORT OF THE WAE TRADE BOARD. (i) Noricay. Knox, H. W. Cribben, Catherine, typist. Yereen, Essie, typist. Ciii-rott, O. B. Becker, E. M., typisr. Roberts, Mllclred. stenographer. (fc) Sircdcri. DeWetter, H. Eraser, Catherine, stenograplier. Gains, Phoebe R.. typist- Peters, Ida M., stenographer. il) Smtgerland. Corbin, Austin, assistant. Allyn, Bernice, typist. Challice, Mrs. A. M., clerk. (m) European Neutral Division. Hopkins, Granville B.. Asst. Director in Charge. Bogert, Vanrlen F.. sec.-stenog. Clark, Mary B., chief clerk. Cailes Hadley, Walter N., iissistant. Armstrong, Erma S., typist. Darby, Blanche, typist. Dorsey, Emma H,, typist. Dulln, Helen A., clerk. COKKESPONDENCE .\Nri FILER. Giron, A. J. Keefe, Loretto C. stenographei-. Kiefer, Mabel E., clerk. Smith, Genevieve, stenographer. (a) Incoiiiinp mail. Bowen, Bradford. Fox, Charles, assistant. Benson, George R., messenger. Butler, Estelle D., stenographer. Coventry, Grace, typist. Grothers, Elizabeth, assistant. Kelley, Mattie B., clerk. Wagner, Charlotte, clerk. Westcott, Pollie AY.,. clerk. Lewis, Ethel -S., clerk. Nix, Gertrude M,, messenger. (6) Files. Erwin, Pellie H. Alexander, Marie, clerk. Bean, Ruth A., clerk. Coonee, Rose, clerk. Govern, Beulah S., clerk. Hill, Mary E., clerk, Ingerson, Dorothy, clerk. Ross, Sara W., clerk. Y'illiams, Myrtle, typist. (c) Stenographic Section. Hackett, Gertrude M. Alderman, Florence, stenographer. Boone. Lottie L., typist. DeNavarro, Carlos, stenographer. Silverberg, Belle, typist. REGISTRY AND ISSUING DIVISION. {a) Distributing Section. Dean, T. Ackerman, Herbert, clerk. Brugh, Violet, clerk. Bruner, Edith P., clerk. Burgess, Mildred, clerk. Burtley, Harry L., assistant. Cambier, Josephine, clerk. Campbell, Etta B., clerk. Carter, Ralph, messenger. Cobb, Elizabeth, typist. Collins, T. H., messenger. Coughlin, Cecillia, typist. Davis, Ella, clerk. DeArmond, Ray, stenographer. Donaldson, Pearl, clerk. Ford, Esther B., typist. Gallagher, J. J. F., typist. Garth, Ella W., clerk. GifCord, Henry E., messenger. Green, E. W., assistant. Hall, Irene, stenographer. Healy, Norine, typist. Hill, T. H., typist. Kloepfer, Gertrude, clerk. Layson, Mrs. A., clerk. Marshall, Leila, clerk. McClinton, Annie, clerk. Moyer, Ray H., typist. Pierce, Jeanette, typist. Roden, Andrew, clerk. Y'ells, Orva J., clerk. Wilkin, Gladys M., clerk. AYoodward, Lucie If., clerk. (ft) GommodUy ruling cards. McHale, J. T. Adams, Ruth, clerk. Banton, Bertha, clerk. Barbee, Ethel, clerk. Bowie, Catherine, clerk. Case, Hazel, clerk. Cooperman, Anna, typist. Edmonston, Blanche, clerk, Edwards, Bess, clerk. Grant, Ruby, typist. Hickey, Mary, typist. Johnson, Floyd, messenger. Long, Bessie M., clerk. Major, Eliza, clerk. Martin, Ashby T., clerk. Miller, Blendena, clerk. Miller, Claudia, clerk. Moultou, j\Iary P., clerk. Pleasants, Mary E., clerk. Scott, Annie M., clerk. xi>jujx v^Aix \ja: J.JJLJU v\ iiJ^i J.J\1\JJXU I>\JAJXUt 463 Taylor, lona W., clerk. Vandervort, Clara, clerk. Wiegel, Rose M., clerk. Zieman, Rose, typist. (c) Carding room. Patterson, Mary. Anderson, Agnes, typist. Burks, Laura I., typist. Dashiel, Margaret, clerk. Eckloff, Rose, typist. Erdman, Gladys, messenger. Exclier, Julia, clerk. Fangliender, Fern, typist. Ferry, Margaret, clerk. Hawkins, Stella J., typist. Karpeles, Vena, typist. Kienast, Emily, typist. King, Mabelle S., typist. Mattingly, Tessie, clerk. McWilliams, Marie, typist. O'Connor, Helen, typist. PfafE, Gertrude, typist. Reaney, Carol, typist. Rector, Florence A., clerk. Robey, Besse M., typist. Roth, Alma E., clerk. Rover, Katharine T., typist. Van Cott, Florence, stenographer. Venable, Clarissa, messenger. Waring, Anna, clerk. Wright, Mary M., stenographer. Zahniser, Marie M., clerk. (d) Examining applications. McCarty, J. J. Baer, Hilda B., clerk. Christenbery, B., clerk. Friend, Ada B., typist. Gallup, Gladys, clerk. Hann, Anna M.. clerk. Harwood, Rica T., jr., examiner. Keefe, Rose H., typist. Larrick, Elizabeth, clerk. Peabody, Don., jr., assistant Shanahan, Thomas, clerk. Sullivan, Edna C, clerk. (e) Refusals. Davis, Katharine P. Barnette, Marguerite, typist. Chamberlin, Orrell, typist. Davidge, Margorie. typist. King, Edna M., clerk. Lamasure, Mignon, typist. Simpson, Ethel, typist. (f) Filing Section. iL'ovner, Miss Anna. Behre, Susie W., clerk. Beale, Edith, clerk. Bornholt. Lydia, clerk. Bowen, Mellie, typist. Brower, Mabel, clerk. Brown, Coreen, clerk. Brown, Elsie, clerk. Carey, Margaret V., clerk. Carey, Martha, clerk. Choate, Ruth D., clerk. Clark, Catherine E., clerk. Cole, Louise D., typist. Coppedge, Callie, clerk. Cunningham, Theodora, clerk. Daniel, Helen L., clerk. Davies, Louise, clerk. Davis, Mlgiion, typist. Donaldson, Helen, clerk. Duffy, Irene, typist. Dunn, Agne.s, stenographer. Fidler, Ocal, clerk. Gates, Maude, clerk. GuUey, Rose, clerk. Guy. Emily L., clerk. Harmon, Harriett, clerk. Harrison, Rivers, clerk, Hazen, Haroldine, clerk. Hodgkins, Ida M., clerk. Holt, Emma J., clerk. Hughes, Bertha C, typist. Hurst, Grace, clerk. Hutchlngs, Ruth C clerk. Hutchinson, Marguerite, clerk. Isaacson, Ruby F., clerk. Jenkins, Mayrae P., clerk. Johnson, Emily W., clerk. Joyce, Laura E., typist. Kelty, Amy C, clerk. Kimm, Lillian V., clerk. Klein. Jidia, typist. Matach, Emma M., clerk. Metivier, Renee, clerk. Monaghan, Mary R., clerk. Morris, Nettie J., clerk. Patchell, Julia A., clerk. Patterson, Sarah J., clerk. Prescott, Frances, clerk. Ramsay, Frances, clerk. Richmond, Marguerite, clerk. Ringler, Alma A., clerk. Rollins, Belle, typist. Slnkinson, H. V., typist. Smith, Mary Lee, clerk. Suit, Mary B,, clerk. Unrue, Addie, clerk. Warren, Enid, clerk. Wescott, Lola, clerk. Weybright, Margaret, typist. Whitmore, Vera D., clerk. Williams, Elizabeth, clerk. Williams. Elsie M.. clerk. Williams, Lue E., clerk Willis, Chloe M., clerk. Wooster, Florence, cleric. Young, Augusta, clerk (y) Inquiry Section. Shores, Lydia. Bates, Marion C, messenger. Brown, Ruth, clerk. Brown, Maude, clerk. Dahlberg, Nan A., clerk. Flanagan, JIargaret, stenographer. Gall, Beatrice, clerk. 464 EEPORT OF THE WAk xitAUJi jsuajsu. Gray, Margaret, clerk. Malm, Hildur, typist. May, Lettie, clerk. McLaughlin, Leola C, clerk. Perry, Irma, clerk. Powell, Louise, typist. Selak, Janet, stenographer. Tait, Adele, clerk. Van Airsdale, Inez, clerk. A¥alter, Katharine, clerk. Winsor, Mildred, typist. Woodell, Mary K., stenographer. Young, Lawrence, typist. (ft) Licensing Section. Borgstadt, H. Atkins, Mary L., clerk. Beasor, Louise E., typist. Blackley, Belle, typist. Bradley, Katherine, clerk. Briody, Cecelia M., typist. Burgess, Edna, clerk. Burrows, Elsie, typist. Bryant, Lola E., clerk. Canning, Fleda R., clerk. Chiswell, Lulu M., typist. Claveloux, Marie K., typist. Collier, Florence, typist. Cooke, Florence, typist. Crowley, May J., typist. Duty, Margie, clerk. English, Lucy, clerk. Finney, L. G., clerk. Hall, Margaret, clerk. Hinkle, Anna A., clerk. Jones, Edna M., typist. Keenan, Clara, typist. Keener, Goldie, clerk. Kingsbury, Dorothy, typist. Madsen, Florence, typist. McCune, Adelaide, clerk. McKnight, Ada, clerk. Mealy, Marie B., typist. Merritt, Gertrude, clerk. Milford, M. F. B., typist. Murtaugh, Mary A., typist. Ockershausen, Grace, typist. Parsley, Ruth P., typist. Piper, Edith N., clerk. Powell, Elsie, typist. Powers, Hazel, typist. Roche, Katharine, typist. Rubin, Lillian, typist. Ruppenthal, Viola, typist. Rust, Madge H.. typist. Schulte, .Janet B., clerk. Stevens, Edith M., clerk. Taft, Mary B., typist. Tobin, Helen S., typist. Velie, Helen R., typist. Walters, Lela H., clerk. Weeks, Grace L., stenographer. White, Emma E., typist. Wilmer, Nannie T., typist. Wooster, Helen A., typist. Wulff, Anna L., typist. (/) Signing and mailing. Bradley, C. F. Butterfleld, Louise, clerk. Carlisle, Minnie F., clerk. Earnshaw. Catharine, clerk. Gaddis, Sarah E., clerk. Mahoney, Criena, typist. Ruark, Olive, Clerk. Senneff, Lucille, clerk. Smith, Byrnina, clerk. Spedden, Nellie A., clerk. Stearn, Ella H., clerk. {)) Consignee files. Cinechesi, Vinetta. Carter, Mildred B., clerk. Earll, Louise, clerk. Evans, Sara L., clerk. Kiefer, Mabel B., clerk. O'Donnell, Mary M., clerk. Warder, Btta A., clerk. Weaver, Margaret W., clerk. Weybright, Isabelle, clerk. (k) Consignor files. Williams, Lora. Baughman, Rose E.. clerk. Conover, Grace, clerk. Demorest, Sara M., clerk. Kenny, Mary B., clerk. Lecklider, Margaret, clerk. Ware, Cornelia, clerk. Worthington, Pearl, clerk. EXECUTIVE COMMITTEE. Anderson, P. C. Morse, E. K. Macy, W. K. Bogert, Florence E., typist. Clark, George R., stenographer. Goodwin, Btta R., assistant. Messengers. Campbell, Daisy R. Franklin, Viola. Harris, Arizone E. Pinn, Helen E. Stewart, Beatrice. Appointees separated hefore the armistice or appointed after the armistice. Directors : Miller, J, Bernard ; Van Sinderen, Henry B. Abell, James R. Abramson, Nathan. Ackerman, Allison G. Ainsworth, Ruth. Aldridge, William T. Allen, Isabelle M. Arnold, Samuel G. Asnis, Charles E. Atkins, Viola M. Baggott, Mary J. REPORT OF THE WAR TRADE BOARD. 465 Balch, F. A. BaUlwin, Lucille V. Barnes, Marie B. Barry, Harriet. Barry, Kathleen E. Barry, Marie M. Bartlett, Charles G. Bassett, Carrie E. Battcock, Julia M. Bayer, Hilda E. Bayette, Eugene C. Bea!, William De Ford. Beman, Elizabeth. Bernstein, Evelyn. Bernstein, Maurice H. Berrigan, Donald B. Best, Anna A. Biggers, ^'ernon W. Bixler, Lillian M. Black, Hilda. Blackwell, Catherine C. Blaisdell, Gertrude G. Blewitt, Merle T. Bliss, Mas L. Blonien, William J. Bloom, Irene M. Bloomberg, Harry. Blumenthal, Irene. Boake, Grace C. Boalo, Edith. Boaze, Mary J. Bogadanoff, Jacob I. Bollenbacher, Joseph A. Bonnett, Phcebe. Boswell, Dorothy A. Bowe, Louis. Bowne, Bradford L. Boyd, Arthur W. Boyd, Jessie. Boyd, Mary. Boyington, Mary A. Brainard, Miller. Brame, Annie R. Branagan, Elizabeth. Brasley, Belle G. Bridges, Mary E. Br:dgetts, John, jr. Briggs, George W. Broedel, John E. Brooke, Gwendolyn. Brookes, Irene. Brooks, Blanche. Brown, Ethel J. Brown, Margaret E. Brown, Sallye F. Brownell, May L. Bi'ush, Margaret A. Buell, Dorothy W. Burcham, Aura. Burke, Mildred B. Burkhalter, Joseph C. Burkhart, May Frances. Burrows, \Yilliam F., jr. Burton, Eliza A. Burwell, J. F. Cahill, Madeline S. 103584—20 31 Callahan, Charles. Callahan, Walter F. Callaii, Ruth M. Callihan, Vada. Cameron, Thomas F. Carlson, Joseph P. Carney, Alice L. Carroll, Marie K. Carruthers, Margery. Carter, Fannie H. Carter, Marion C. Carter, Ruth P. Cassidy, Thomas J. Cavanaugh, Ellen L. Chamberlin, Hattie Stevens. Chinn, Thelma R. Churchill, Fern. Clarenbaoh, Henrietta. Clark, Allen W. Clark, Bi'ssie. Clark, Mary. Class, T. Sherman. Clinto, Carrie P. Cohan, Betty S. Colbert, William H. Colcord, Clarence G. Coleman, Nellie Elizabeth. Collier, Esther S. Colliere, Helen E. Collins, George A. Collins, Katherine. Condlct, Philip K. Conley, Helen. Conner, Grace L. Conroy, Edward. Cooksey, Blanche E. Corbin, Albert. Cordary, Bertha, Cottrell, Mae V. Ciiaveii, Allred M. Crean, Ida M. Ci'issey, Mabel E. Cronin, Hei'bert T. Crosthwaite, Burwell M. Culbertson, Carrie C. t'uUey, William O. H. Cuming, Alice M. ( 'usack, James R. I>avidson, Faith B. Davidson, Mabel M. Davis, Ezel A. Davis, Harriet. Davis, Norman H. Davis, Pauline S. Delehanty, Loretta. Del Grosso, Vicent M. Dellinger, Alice S. De Rosa, Roger I. Dickler, Sadie A. Dillon, Abby R. Dillon, Edna L. Dillon, John A. Dillon, Margaret. Dodge, William O. Doberty, Frank R. Dolgenas, Tillie. 466 REPORT OF THE WAR TRADE BOARD. Donovau, Harold E. Doniier, llae R. Dorr, Goldthwaite H. Drew, Frederick C. Duftan, Marlon R. Dunmare, Loiietta. Duune, James E. Dykman, .laelcson A. Early, Mary C. El)erts, Lucille A. Ebliiig, S luuiel G. Elsin, Marvin. Engle, Alice. En.sko, Elathene A. Ep.stlen, .Joseph. Erickson, Elmer W. Evans, Ruth. Fiirrell, Isabella. Feldman, Herman A. Ferry, Emily M. Feuersteln, Lulu. Flcke, Lottie R. M. Pidler, Pauline. Flnkelstein, Rebecca. Fitzgerald, James P. Fleming, Alice. Fleming, Edith H. Fleming, Lucille. Flynn, Marjorie V. Ford, Jack. Frankel, Eugene. Freeman, Edna. Freeman, Sidney. Prey, Katherine M. Friedlander, Harry. Friedman, Ella. Fuehrer, Louise. T'ulguiii, Eimiee R. Fusaro, Julia. iJalnes, Elizabeth D. Gaines, Floi'ence M. Gallagher, Bertha. Galpin, Stephanie K. Garrett, Rowena. Garusey, Owen A. Gee, Edward Stanton. Gelwag, Morris. Gerkin, Irene. Getchi'll, Charles E. Glasscock, Gerald A. Goddard, Frrnees. Godfrey, Anita. Gold, Harry. Golden, Louise. Goldman, Joseph L. Goldstein, Robert 0. <4onzalez, William A. Goodall, Anna M. Goodrich, Harold F. Goss, Margaret V. GoiUd, Henry. Grady, .1. Ambrose. Gi-ay, Charles G. Greenberg, Ida E. Grew. Edith M. Griffiths, May. Griggs. Nellie H. Grimes, Katie V. Grossman, Flora B. Gulledge, John W. Gutmaii, Leo J. Guyett, Walter D. Haase, (I'arrie V. Haber, Alirahnm. Haberman. Thorborg B. Hagstrom, Francis E. Hains, Mary. Hall, Clarence. Hall am, Dorothy H. Halle, Stanley J. Hamilton, Helen. Hamilton, Minnie D. Handy, Jnseph B., jr. Hanna, Sliriam. Hanneman, Mary. Hardy, .John .1. Harkaway, Cecelia S. Harkins, Ruth L. Hariiington, John E. Harrington. Lansfor M. Harris, Julius M. Hartstein, Anna. Havenner, George C. Havenner, Herbert Elmer. Hawks, Alys, Hawley, John AV. Haycock, George S. R. Hayman, Gertrude. Helleir, Janet B. Hendrlx. Byron M. Henkiu, Rose. Herbert, Louise. Hering, Mrs, L, Feldl. Hersey, Ella JI. Herz, Charles. Hickman, H. Higgins, Harry A. Higgins, Harvev A. Hill, Corneha H. Hill, Ethel ai. Hinton, Robert .T. Hippie, Nettie J. Hogan, George ,). Holland, Hester. Holland, .John A. Holmes, Louise AV. Holtzberg, Abraham. Hooper, George F. Hopwood, Harold E, Horiwitz, Henrietta, Ilorton, Hilma A, Houghton, Rose A. Howe, Mildred W. Huenlich, Ida JI, Huggins, Thelma, Humphrey, Juinita D. Hunley, Ruth E. Hunsaker, Albert. Hunt, Albert G. Hurley, ilarie L. Hutton, Leona R, Hyland, Emily M, Hyman, William. Hynes, T. Milton. REPORT OF THE WAR TRADE BOARD. 467 Iglehart, Donald H. Illingworth, Eva A. Ingram, Mrs. Rodman L. Ivins, Hope. Jackson, Blanche. Jackson, Eva. Jackson, Mary M. Jacobs, Edward. Jennifer, William E. Jerome, Lucy B. Jewett, Thomas H. Johnson, Jason W. Johnson, Todd W. Johnson, Willard G. Johnson, Woolsey McA. Johnston, Charles E. Jones, Elmer D. Jones, Lawrence T. -Topling, M. W. Jowett, Percy F. Jiidd, G. Welton. Kahler, Hugh McNair. Kane, Anna R. Kane, Mary A. C. Kaufman, Jeane. Kearns, John. Kelley, Gertrude. Kelsey, Grover D. Kenney, John T. Kenny, John Francis. Kent, Bernice E. Ketner, Kyle B. Keyser, Augusta K. King, Esther M. Kingsbury, Eunice B. Kiss, Loretto T. Klinger, Mollie A. Kohn, Abraham R. KoUett, Peter. Koster, Christine M. Kremb, Effie. Krieg, Elsie. Kruger, M. E. Kuba, Julia. Kuntze, Jessie L. Lancaster, Laura G. Lane, Claude N. Lane, Lawrence J. Lang, Dorothy M. Lansdale, Mary L. Lavlnthal, Aaron. Leets, Marjorie E. Levi, Harman L. Levin, Jeanette. Levine, Anna. Levy, Agnes H. Levy, Anna. Levy, Louis. Lewis, Blanche E. Lewis, Clinton. Lewis, Hillary. Lewis, Mary O. Lincoln, Bernice. Lindley, Stella M. Livingston, Edith. Lomas, George C. Long, George. Lowell, May I. Lowell, Richard. Lowenkron, David E. Lowenstein, Fannie H. Lynch, James Walter. Lynch, Nelly K. Lyons, Helen M. McArthur, Marjorie H. McCloskey, Mary. McConnell, Chalmers. McCreery, Almira F. S. McDonald, Elizabeth. McEntee, Edythe M. McFarland, Mrs. L. Forbes. McFarland, Ruth E. McGeorge, Thomas. McKellar, Robert E. McNe'ill, Allle. McPherson, Wm. MacDonald, Francis J. MacFarland, Alice. MacNamara, Eleanor Blake. Macy, Josiah Noel. Malloy, Helen. Margulies, Albert A. Marshall, Alfred. Marshall, Florence M. Martin, Bernard I. Mason, Adella. Mayer, Edwin B. Mayes, Margaret Alice. Meares, Henry H. Blellor, Albert L. Merrill, Jesse S. Merrill, Ralph W. Merriman, Hazel. Mershon, Kathryn. Miller, Ariel E. L. Miller, Marjorie. Miller, Preston D. Miller, Robert. Mills, James F. Mllner, Harry R. Moler, William G. Mollnelli, Albert J. Monahan, Francis G. Moncure, Liza B. Montgomery, Chester. Mooney, Florence B. Moran, Mary C. Morano, Joseph. Morrill, Amos. Mueller, Charles J. Munnich, Harriet E. Murdock, Irene. Murphey, Elmer R., jr. Murphy, Joseph F. Murray, Thomas. Myers, May L. Myers, Olive B. Mvers, Sherwood. Nance, Willis D. Nathan, Kitty. Neuland(-r, Emanuel. Nevils, Evelyn. Xewitt, Warren E. . Nicholas, Louise C. 468 REPORT OF THE WAR TRADE BOARD. Nixon, F. K. Norcmss, Edith G. Xortlirup, Zora A. Norton, Louis O. Nuemann, Dorothy D. O'Brien, George L. O'Brien, John G. O'Brien, Nettie V. Ofleutt, Emma L. O'Hara, Vincent T. O'Leary, John F. O'Malley, James. O'Neal, W. T. O'Neill, Ellz. C. O'Neill, Harry B. Orr, Jeanette P. Osborn, Lester J. Ovitten, Anna H. Overall, John H. Owen, Earle D. Palmer, James J. Pardee, Gertrude. Parker, James A. Pavev, 0. A. Peck, L. AV. Peck, William E. Pepper, Mrs. S. Perlman, Fredricka R. Perlman, Wm. S. Perry, Edward C. Pettit, Margaret. Phelps, Isabelle B. Phillips, Beatrice. Polls, Abraham. Potter, Edward C. PowdreU, Fred A. Powell, Hazel A. Prince, Motyon P. Prothero, Harry. Pugotsh, Tillie. Purcell, Mary. Purinton, Vivian J. Quiney, Samuel. Quinn, Elizabeth H. Oulnn, Roberta. Radway, Edward M. Rea, Ben C. Rea, Irving H. Reynolds, Oliver C. Rlchter, Mildred. Read, Florence G. Reeder, Adelaide R. Reilly, David F. Reilly, .Joseph G. Reilly, Katherine L. Renn, Myra E. Resnlck, Lucy. Rhea, .John A. Ribsteln, Louise. Richards, Emma L. Richards, Wm. N. Riley, William S. Robb, Lyle. Roberson, Helen. Roberts, Thomas B. Robertson, F. 0. Robertson, Mildred M. Robovsky, Mary. Rose, Geo. Rose, Rebecca. Rosenblum, Anna. Ross, Romola. Roth, Anna C. Rubenstein, Irwin Raymond. Rudder, Willie C. Rust, Frances A. Rust, James Herbert. Rutter, Dorothy I. Ryan, T. Edmund. Sachs, Leonard. Sager, Julia L. Salisbury, Cora E. Samuelson, Max. Santoro, William. Sblsa, H. G. Scanland, Nathan. Schaffi, Norman. Schenck, Henry. Scher, Sarah. SchifCer, Jack W. Schleef, Clarence M. Schleiff, Tillie. Schneider, Esther. Schneider, Rose. Scholl, Irene. Schwartz, Gertrude E. Schwartz, .Jeannette. Scott, Eva P. Scott, Matilda A. Scott, Thomas. Searles, William L. Seddicum, Paul. Sellers, Hilda E. Sewall, Henry F. Shackleford, :JIillie. Shadd, Alice P. Shattyn, Henry. Shea, Marie L. Sheedy, Ann. Sheehan, Murray. Sheridan, Albert. Sherwood, Adeline Ann. Shinkel, Emanuel. Short. Charles W. Siegel, Milton M. Silbaugh, Mary L. Silverman, David. Simon, John George. Simpson, Clyde W. Skinner, Celestia .T. Slyer, Elizabeth C. Slutsky, Mary. Small, Gertrude C. Smelser, Esther. Smith, Elizabeth S. Smith, Florence .J. Smith, .Tane S. Smith, Julius T. A. Smith, Lawrence B. Smith, Louis G. Smith, T. R. Smith, Teresa M. REPORT OF THE WAB TRADE BOARD. 469 Snider, Guy Edward. Snow, George Palen. Somerville, Geraldine R. Spaguola, Joseph S. Spaight, Catherine R. Sparlvs, Jlabel W. Spealis, Alberta. Speer, Fiank H. Spiegel, Cliarles. Spielliolz, Tena J. Spreckehiiyer, Adelaide A. Stam, OiiUn F. StiUiton, Napoleon H. Staples, Clarence L. Starkes, Eugene H. t., clerk. Cranmer, Viola M., stenographer, Payne, Louise, clerk. Surguy, Katherine, t.vpist. (d) Cocoa beans, halsa icood, Japan- ese foodstuffs. .Jordan, Stanley, chief. Goodfellow, Dorothy, stenogra- pher. Hutchins, Mary E., typist. Hutchins, E. AVinnifred, clerk. (e) Cotton, wool, fla.r, and silk. straiD. fibers- Pratt, A. K., chief. Brice, Mary, assistant. Pole, Jessie R., clerk. Whalen, Helen, stenographer. Witkowskl, Flora, typist. if) Hides. sl:ins, tanning materiaJs: McNeely, Charles W,. chief. Paine, C. C, assistant. Goodno, Nellie, stenographer. .Jessen, Jlnrvel, typist. McNutt, Helen, stenographer. Nusbaum, Nellie, typist. White, I^elia, clerk. {g) Iron, steel, and ferro-alloiis. Caldwell, AV. A., chief. Ricks, N. K., assistant. Reed, Dorothy, stenographer. (/() Oils, gums, mits. tobacco, emery,, corundum, fira/ihite. Van Siclen, G. AA'., chief. Llewellyn, Ida L., stenographer. Parker, Beatrice, stenographer; KEPORT or THE WAE TRADE BOARD. 471 (0 Rubber and kindred products. Dickerson, W. H., chief. Jlinnix, Mary G., assistant. Custis, Catherine, clerl<;. Jlonme, I.ciis, stenogi-apher. Seamans, Marie, cleric. Smith, Elizabeth N., dictaphone. StiUller. R. B., bool^keeper. Wilder, Lelia P., clerk. (./) .Uiiniifdcfiircd si//,-.-;. Ladd, (i. T^., chief. Van Fds.'^en, Ella Y., stenographer. TRADE ADVISERS AT LARGE. Rothchild, ileyer D. Tracy, Fn-di'ick A. Wilson, Charles T. niVISloX OF INCOMING MAIL. Kuhii, Marsaret, cliief. Cure, Helen W., clerk. Dellinger, ilattie, clerk. Maddox, Lolla, clerk. Wright, Mary E., cleric. DIVISION OF INTERPRETATION AND RULINGS. Bonner, JIae C, chief. Conklin, Jessie, typist. Dowe, Myrtle .1., clerk. .Tones, Helen L., clerk. MacFadden, Iva, clerk. Pitcher, Dorothy, stenographer. DIVISION or .VPPLICATION DISTRIBUTION. Wiiley, Mrs. JI. S., chief. Stein, Katherine M., assistant. Froley, Alma, clerk. Klal>eii. Reuben, messenger. Rupard. Thomas, messenger. Schoyer, Leona, typist. DIVISION or CHECKING. Chapin, Charles D., chief. Jliller, Mary J., clerk. DIVISION OF AUDIT. Wl.elchel. .Tasper E. DIVISION OF CABLING. West, Laura A., chief. Anderson, Helen, typist. Atherton, .Tulia, typist. Bruffey, Leha J., typist. Butler, Martha, typist. Ghadbourne. Eva, typist. Churchill, Frances, clerk. Cockrill, Flossie, typist. Iiawson, Susie, typist. Dix, Irma, typist. Donohue, Frances, typist. Donnell, ;\Iary, clerk. Dow. Elizabi'tli, clerk. F;idredi;(', Ruth, typist. Kngland, Blanche, typist. Pricdli, Bertha, typist. Pi-iedli. Blanche, typist. Cladstone, Mae T., typist, (ilancy, .Teanne, typist. (Irassel. Annette, typist. Hahn, Alma F., clerk. Hodgkins, Alice, typist. .Tohnson, Marion L., typist. Ijaurens, Annis, tvyrist. Lovell, Ellen, tvplst. :\Iiller, Alabel M., typist. Newton, .Josephine, clerk. Russell, Elizabeth, typist. Sanders, Mary B., typist. Saunders, .Tewell. typist. Scuddei-, Katherine, typist. Snow, Anne, typist. Steward, L. L. M., typist. Trenary, Florence, clerk. Vcale. Anna W., clerk. Watson, Emille, clerk. Webb, Francis, stenographer. Weekly. Alice SI., typist. Whiton, Ethel, typist. DIVISION OF ISSUTNd. Booth, G. W., chief. Sparks. Virgie, assistant. Braxton. Nannie .T., clerk. Burns, Margaret, typist. .Tones, Winnifred, clerk. Randall, Marion, stenographer. Sullivan, Mary, messenger. DIVISION OF TRACING. Talbot, A. L., chief. Atkinson, Mary E.', assistant. Grant, Frances, clerk, typist. Ransom, Frances, clei-k. DIVISION OF APPLICATION FILES. Natalby, Mrs. A. M., chief. Bakei-. Caroline B., clerk. Conner, Margaret, messenger. Grebe, Olive, clerk. Guth, Mabel, clerk. Simons, Margaret, clerk. Smith, Lucy B., clerk. Stickney, Mildred, clerk. Uhrich, Sadia J., clerk. Williams, Lucy, clerk. Zalsak, Wllli^-ni, clerk. 472 EEPOKT OF THE WAR TRADE BOARD. DIVISION OF (.OKRESPONDENCE FILES. PepptT, Margaret, chief. Cator, Nadlne, clerk. Cooley, MoUie K., clerk. Grotts, lieiia, messenger. Donnelly, Elizabeth A., clerk. Frey, Adelaide C, clerk. Haas, Esther M., clerk. Long, Harriet E., clerk. DIVISION OF SUPPLIES. Fiscus, Marie, chief. Appointees separated hefore the armistice or appointed after the armistice. Allen, Theodora. Armatiige, Wellesley D. Baunigarten, A. J. Beclver, Bertha E. Benedict, Frances. Bennett, Delia R. Bennett, Nelson B. Bonner, Helen Louise. Brill, Francis B. Brooks, C. J. Burns, Margaret. Caldwell, Allen B. Carpenter, Ruth M. Clark, George E. Cookman, Earl C. Currey, Pearl. Davis, Mary P. Dickinson, Irene A. Donnelly, Olive Jones. Douglas, James R. Dudley, Frances. Duncan, Lola W. Dusenbury, Lillian. Ellis, Dorothy H. Elmendorf, Louise F. Feeley, Matthew M. Forgan, James B., jr. Frankel, Abraham. Freifeld, Augusta. Galloway, Etta "L. Gammon, James L. Gamier, Elmer P. Goldstein, Harry. Gruening, Ernest H. Guiklday, Margaret M. Haber, Louise F. Hagemeyer, Frank E. Haig. Fred .T. Hays, Miss Robbie B. Hoadley, Maude Horn, Isabelle M. Hotchkiss, George B. Hurley. Charles T. Hutchinson, Lincoln. .John son, Peter .J. .Toi'dan, W. Tj. Judd, Willis A\'. Keiinceaton, Linda E., stenographer. Trevena, Evelyn JM., stenographer. ASSISTANT DIRECTOR. Tliifer, T. McG. Bonner, Grace F., stenographer. Caliill, Helen M., stenographer. Krouse, Irene C, stenographer. ASSISTANT TO THE DIRECTOR. Brown, C. Earl. Donovan, Madeline D., stenogra- pher. ADMINISTRATOR. Rogers, R. S. Evans, Jlinnle E., stenographer. SHIP STORES AUDITOR. Van Widdlesworth, Lester. Bruner, Muriel, clerk. Erana, Mariano A., typist. Rachford, Leo, typist. Ruppert, John P., typist. Sisson, .John H., clerk. Travis, Rose 51., clerk. Waters, Achsah E., clerk. CHIEF DIVISION GENERAL CORRESPOND- ENCE AND SHIP FILES. Lewis, Jloe. Cochrane. Williamina F., typist. Taylor, Marshall, clerk. Truesdell, Mildred S., clerk. Zeigler, Charlotte M., typist. CHIEF DIVISION RECORDS AND BUNKER FORM FILES. Eberhart, D. C. Byron, Eleanor M., clerk. Cantwell, Arthur A., clerk. Carter, .Jennie D., clerk. Christenburg, Telia, clerk. Collins, Catherine E., typist. Cuniniings, Anna L., typist. Dewey, JIary, typist. Flynn, .Tane E., typist. Garrett, Laura M., clerk. Gorniley, Esther M., typist. .Tohn.sou, Sanonia, typist. Kohcrnick, .Anna, typist. Kramer, George, clerk. Mallory, Daisy M., clerk. Mueller, Katherine, typist. IMullan, Ethel 51., typist. O'Donnell, Catherine, clerk. Shulz(>, Nita, clerk. Swartz, aioUie, typist. Stuart, Beulnh D., typist. Tomlinson, Adelina W., stenogra- pher. DAILY RECORD OF LICENSES GRANTED BY SPECIAL INSTRUCTIONS AND LICENSES PENDING. Drury, (I B. McNulty, Elizabeth E., typist. TABULATION, LICENSES, BUNKER, FUEL. ETC. Nesbitt. W. F. Aderholt, Edith M., clerk. Compton, Laka F., clerk. Donoho, Emmie L.. clerk. Gumaer, Clara, typist. McNulty, Marie, tvpist. Shulters. Mabel L., clerk. LICENSE REVIEW. McDonald, Ward. SHIP TRANSFERS. Hutchinson, Lois I. SUPPLIES. Xeal, B. A. Kidwell, Ida M., typist. INFORMATION. Steele, Virginia M. BRANCH OFFICES. (1) New York. Bogert, T. L., agent. Hall, Thomas W., as.sistant. Kane. .Tames F., assistant. McMulleii, Ray W., assistant. 474 REPORT OP THE WAR TRADE BOARD. (2) Boston. ilassey, A. P., agent. Harrison, Lucinda C, assistant. (3) San Francisco. Cory. I. H., agent. Clark, C. T., assistant. ( .'/ ) Los Angeles. Peyton, lUiliert ('., agent. (5) Seattle. Wri;;lit, P^ilgur, agent. Eglin, Effa, assistant. Appoint CCS separated heforc the armistice or appointed after the armistice. Anderson, Sidney W. Arnold, .Jacob H. Bartley. Buelaii F. Bergliardt, Eugenia . Billings, Geo. E. Caliili, Helen M. Chiles, Kosa P. r)ickie, Edna. Dortch, John B. >]ber\vine' A'ernon G. EddiJigfield, Frank T. Fertich, George R. Gahbott, William E. Gore, M. D. Graham, Ruth. Gunn, .Tulia .T. Hnsscy, Daniel A. J. .Johnson, I5mory R. I.a Follette, :\Jalcona M. I>ee. Susan M. Ijowrance, J. W. tjucas, Marie E. Marboie, Anthony J. B. Jlorgan, .John IC. JlcCarthy, Katherine E. Mermel stein, Regina E. Millan, Ruth C. Millham, Charles R. Moulton, Marguerite R. Mountain, Marion L. JIurphy, Charlotte. Xulty. Amanda M. Norton, Hammatt. O'Donnell, Ellen. Paden, M. Maude. Preston, E. Donald. Pratt, Frederick. Quigley, Mary, lialston, Glenn P.. Rigby, Charles. Rvan, Mary C. Shaw, Sallle F. Skentelberg, Charles. Sloan, Helen A. Smith, Cleowa. Smith, Robert D. Stickney. M. Irene. Strickland, .Juanita C. Strohecker, Ed^\•ard L. Thomas, Lucile. Tomes, C. A. ^^'arton, Thomas A. A\'atters, Albert L. BTJEEAU OF ENEMY TRADE. PEESONNEL ON NOVEMBER 11, 1918. Director : John M. Bnright.. DIEECTOK. Enright, John Jl. Burroughs, Ji'lorence, stenographer. Paff, Helen, stenographer. ASSISTANT DIEECTOE. Mc.Manus. Edwin S. OFEICE MANAGEE. Foreman, Gerhard. C0:.IM1'X1CATI0NS TO NEUTEAL COUN- TKIES. Gorges, Raymond, chief. Fellows, l']dwin, assistant. J[o.\iiihan, Anna, stenographer. EELIEF, TEANSMISSION OF FUNDS, COM- Jir.XICATIOXS TO EXEilY TEKKITOEY. J'ooti', George, Secretary. Baker, Leah, stenographer. Egan, JIaynie, stenographer. Jloloney, Florence, stenographer. Skelly, Mai'garet, stenographer. EXl'OKTS .\ND IJtl'OETS AND TANGIBLE AS- SETS IN AMEEICA. Noble, H. Dutton, assistant. I^lasius, .\dehne, stenographer. I'ofCey, Iorr, Goldthwaite ; Kly, Richard; Fairbanks, H. P. ; Fnller, I'aul, jr. ; Hammond, .Tohn Henry ; Hand", Chauncey H. ; Huston, Charles A. Allert, AV. F. Baker, Newton J. Barry, Catherine A. Batson. Margaret E. Burns. .lulia E. Burke. Francis T. Burke, Elizabeth W. Brittow. Hattie L. Brown, Ammi. Butler. Florence. Butler, Marlon, jr. Bruce. Malcolm G. Bleich, Helen G. Pioyce. Edward A. <'hase, Mildred L. Cole. Gladys H. <'reahen, Blanche. Crowley, Thomas J. Pahl. Esther J. Davis. Anna D. Denvir, John B., jr. Dunbar, Clement Evans. Dunbar, Noel S. Durning. Bertlia I. Erck, Emma J. Ktherbridge. Laura B. Evarts, Mabel A. Fiancis, Thomas. Gaynor, Frank J. Gorman, Harold H. Gregory, Charles N. Guernsey, Lillian. T-Inmmond, Ethel H. Hayes, Louis E. Herring, John A. Heyman, Sara A. Hopkins, Amelia. Hubbard, Arthur L. Hunt. Ward. Kalish. .Tacob. K( mpner. Clarence. Langhorn, Florence B. Loeli. Isaac Anderson. Ivouthan, Arthur V. McBride, E)mnia G. McCrosky. James W. McGonigal, Fred M. MacDonald, Marian. Mallory, Robert, jr. Marks, Gordon M. Mizell. .Joseph Z. Moakley, Elizabeth. Montgomery, Laura V. Norman, Lionel A. Paul, Cora H. Pepper, Margaret. Perry, Hettie S. Philbrook. Florence. Pollock. Theresa. Pool, William H. Prunty. Zella C. Pumphrey. Mary R. Rife, Loretta B.' Sabine, William. Saltonstall, .John L. Sanford, H. G. Saphir, Edward. Seaman, Constance R. Sharp, William E. Snow, Annie M. Snyder, Louis J. Sophrin, Michael. StaufCer, Carl T. Stelnem, Clarence B. Taggart, Rush, jr. Talmadge, Henry. Tingue, William J. Toulotte, B. F. Tucker, Vesta M. Wagner. Lawrence R. Walsh, Edward J. Webb, C. Virginia T. Wise, Clara B. Worrell, Marvin L. R. EMPLOTEES IN DIVISION OF EXPORT LICENSES, BTJREATJ OF FOREION AND DOMESTIC COMMERCE. Axe, Emerson AVirt. Altmeyer, Arthur .L Altschul, Frank. Barber, John E.> Bartlett, Everett E. Beesley, Lucille G. Bovd. Ralnh D. i Bradley, C. F. 476 EBPOET OF THE WAR TEADB BOARD. ^ Breyman, Etugene A. Brown, Shirley H. Burke, Malcolm C. Burke, R. J. Burke, Walter D. Byrnes, Charles E. Caraher, Marv E. Garville, Lillle E. Clemmer, Georgia H. Doyle, AVilliani. Drescher, George F. England, Elsie N. Epstein, Abraham. Freed, Morris. Freeman, Gertrude. Futoronsky, Rose. Garland, Charles C. Glazer, Gertrude J. Gould, Alice M. Greene, William W. Gries, Carrie G. Heap, Allene C. Huebner, Grover G. Johnson, Philip A. Junghans, Marie N. Kavanaugh, Katherine J. Kelley, Florence A. Kelly, Mary Margaret. Krieg, Hazel R. Lehman, Harold M. Lehmayer, Sylvan, jr. Lucas, Louis B. Mann, Minnie I. McGuire, Franklin M. McLinden, Pauline. JWitchell, Mabel G. JUtchell, John M. Morris, Richardson. JluUiern, John J. ,\ash, Ralph H. Nelson. Margaret H. Xoyes, Pierrepont B. O'Brien, Morgan J. I'arker, William. Ferryman, AVill. Riddings, Minnie. Robinson, Lillian E. Rush, Louise M. Schussler, George W. Schwartz, Hannah. Selfridge, Nina R. Sexton, Sherman J. Simpson, Kemper. Smith, Margaret A. Sophrin, Marie C. Thomas, David M. Unger, Julia. Vadebonceour, Juliette. Wahlen, Ada. Wheless, Martha A. Wells, Lola. Whitmore, Olive P. Williams, Curtis C, jr. Wilson, Howard L. AVilson, John B. Wisherd, Helen T. Wolfe, Albert B. Woodbury, Robert M. Zapf, Lacey C. Zolzer, Lulu. o ii ^iSl)!' ill! "!llr'!ii''!;(!' m^y'