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Rh Act of May 20 1918 the President was authorized to rearrange the departmental work and to transfer bureaux according to his discretion. Large numbers of civilian men and women were brought into the War, Navy and other departments, some on salaries, others as “dollar-a-year men”—that is, men who for one reason or another could not enter the army but desired to serve their country at their own cost. The pace was severe, the administration complicated. The main object was to start things moving, without due regard, at times, to immediate results or costs. Plans were made with a view to a prolonged war. The sudden cessation of hostilities found the Government in possession of vast stores of supplies, now unneeded and inviting waste. There was a large accumulation of raw materials but comparatively little of finished product. The most glaring contrast between expenditures and results was in the construction of aircraft. In April 1918 Gutzon Borglum, the distinguished sculptor, and other civilians charged that the aircraft production was extravagant and inefficient. Charles E. Hughes was appointed by the President to make an investigation; he later reported that waste and confusion and inefficiency existed but that there was no wilful plunder of the Government on the part of anyone. Notwithstanding such errors large armies were speedily raised, dispatched and reached the front in time to give decisive aid to the Allies.

During the campaign of 1918 efforts were made to extend the possible field of enlistment by the passage of the Man Power bill of Aug. 27. All men between 18 and 45 were required to register with a view to service if needed, and 11,000,000 were registered. On Aug. 17 it was reported that some 3,000,000 men were with the colours at home and abroad. By a statute of Oct. 6 1917 provision was made for a system of military and naval insurance available for all men in the service. General Pershing officially reported that at the date of the Armistice, Nov. 11 1918, there were in Europe 2,071,463 American officers and men (approximately 82,000 officers). Only about 15,000 soldiers had returned to the United States. On the same date, according to figures compiled by the War Department, the number of troops encamped in the United States was 1,634,499, including 104,155 officers. The casualties up to Nov. 18 1918 were: killed in action, 35,556; died of battle wounds, 15,130; died of other wounds, 5,669; died of disease, 24,786; total deaths, 81,141; wounded 179,625; missing, 1,160; prisoners, 2,163; total casualties, 264,089.

War Activities at Home.—Immediately after the declaration of war the American people through official and unofficial channels made preparations to give support by civilian service and money contribution. One of the first war measures of President Wilson was to designate, April 14 1917, a Committee on Public Information, composed of the Secretaries of State, War and Navy, and one civilian, George Creel, journalist, as chairman. It was designed to be the official source of news relating to Allied war activities and issued a daily Bulletin, widely distributed for the special use of the press. Newspapers were requested to coöperate and to refrain from publishing unauthorized war news. The Committee kept up a lively system of publicity throughout the war, and at times was accused of providing favourable information even when things did not go altogether well. Its publicity work was aided by the National Board for Historical Service, created April 28 1918 at a conference of historians at Washington. Numerous pamphlets, maps and moving pictures were prepared and a nation-wide organization effected for furnishing a patriotic speaking service of “four-minute men,” who by arrangement with the purveyors of public amusements made brief talks before their audiences. By an executive Act of Oct. 12 1917 a Censorship Board was established for censoring all communications mail, cable, radio passing between the United States and foreign countries. Its members consisted of representatives of the Secretary of War, Secretary of the Navy, Postmaster-General, War Trade Board, and the chairman of the Committee on Public Information. Control of all radio stations within the jurisdiction of the United States had been placed under the Secretary of the Navy April 6 1917; on April 28 the transmission of cable messages between the United States and foreign countries had been

placed under the same supervision and international telephone and telegraph messages under the Secretary of War; censorship of the mails began Nov. 2, under the direction of the Post Office Department. This last provision was of great service in enforcing the Trading with the Enemy Act, in suppressing enemy propaganda, and in preventing the disclosure of military information to the enemy.

As early as Aug. 29 1916 a Council of National Defense, created by Act of Congress, had been approved and on March 3 1917 was fully organized. Its duty was the “coördination of industries and resources for the national security and welfare” and the “creation of relations which render possible in time of need the immediate concentration and utilization of the resources of the nation.” Composed of the Secretaries of War, Navy, Interior, Agriculture, Commerce and Labor, it utilized the counsel of an Advisory Commission of seven persons, each one a specialist in one branch of industry. After America entered the war this Council devised the ways and means for efficient production and transportation of the essentials of war. Under it were later created several special organizations such as the War Industries Board (succeeding the earlier General Munitions Board), created July 28 1917, for assuring the prompt equipping and arming, with the least possible disadjustment of normal industrial conditions, of whatsoever forces might be called into the service of the country; the Purchasing Commission, formed Aug. 28 1917, for coördinating the purchases in America of supplies for the Allies; the Emergency Fleet Corp. of the Shipping Board, incorporated April 16 1917 for the purchase, construction, equipment, lease, charter, maintenance, and operation of merchant vessels in the commerce of the United States (see ). Early steps were taken also to conserve the supply of food and fuel. At the request of the Secretary of War (April 9 1917) the various states also organized State Councils of Defense, which supervised such matters as the conservation of food, sale of Liberty bonds and draft registration.

On April 21 1917 the Council of National Defense appointed a Woman's Committee, with Dr. Anna Howard Shaw as chairman, to coördinate the patriotic work of the women throughout the country. Divisions were organized in every state, and within a year four-fifths of all counties had subdivisions. Through these organizations the country's needs were promptly reported and all households mobilized for thrift. On April 2 1917 a General Medical Board was established under the Council. Through its aid medical officers were recruited, various committees were appointed and advice given in the interest of camp sanitation and health of the soldiers.

Hardly less important than production was transportation. The Advisory Commission of the Council of National Defense created a Committee on Transportation and Communication, with Daniel Willard, president of the Baltimore & Ohio railway, as chairman. Already in Feb. 1917 a Special Committee on National Defense had been appointed by the American Railway Association. Railways were requested to adopt measures for the most efficient handling of freight. At a meeting of the presidents of the important railways, held in Washington, April 11, plans were made for organizing an executive committee, composed of the presidents of five railways and of two ex-officio members one each from the Council of National Defense and the Interstate Commerce Commission, with Fairfax Harrison as chairman. This Committee, popularly known as the Railroad War Board, undertook to secure unity of operation among all railways, to subordinate private interests, and to eliminate competition. It continued to work until Dec. 28 1917, when the President placed all railways under Government control. William G. McAdoo, Secretary of the Treasury, was named as Director-General of Railroads, and under him was organized the U.S. Railroad Administration. By an Act approved March 21 1918 each railway, during the period of Federal control, was allowed compensation equivalent to its average income during the year ending June 30 1917; it was further provided that the roads should be kept in good repair and with equipment equal to that assumed by the Government. It was an emergency war measure