mand, and by cooperative methods they have been successful in adjusting to the mutual satisfaction of shipper and carrier many matters which would otherwise come to us for formal consideration.

The facilities and personnel of this bureau are being utilized in certain activities other than car service. Investigations pertaining to various phases of railway operation are handled in connection with the regular field work. Hearings in certain formal cases are conducted and the bureau assists in the consideration and review of others.

We have assigned to this bureau supervision of the investigation in Docket No. 20769, In re refrigeration charges on fruits, vegetables, berries, and melons from the West, which embraces all of the United States with the exception of the charges from and to the territories under investigation in Docket No. 17936, In re refrigeration charges on fruits, vegetables, berries, and melons from the South.

Certain service agents have been assigned to this investigation. They observe the methods of icing, keeping records of the amounts of ice placed in the bunkers of cars at each icing station. They also observe the switching necessary in the icing or reicing of such cars and make studies of time consumed therein not only by the switching crews but also delays to road crews caused thereby. This information forms the bases for cost studies by our accountants.

CAR-SERVICE MATTERS

Since our last report there has been no car shortage. In July there was a surplus of 294,646 cars of all types throughout the country. This number reached the peak in December, when the surplus totaled 464,005 cars.

Many important car-service matters are handled by our field representatives. These not only embrace complaints of shippers against carriers but also involve differences between carriers. Complaints have reached us from various sections of the country relative to the handling of livestock. From the investigations by our service agents have resulted improved train schedules, which have resulted in more favorable loading hours or the elimination of feeding in transit, improved conditions of stock pens and loading facilities, and improved switching service at terminals have been established.

A controversy of long standing regarding the weights of vegetables was settled in informal conference. Competition among vegetable growers and shippers and the abuse of the bulge pack resulted in a wide range of weights covering the same kind of vegetables in similar containers from the same district. In conference the sizes of various containers were agreed to as were estimated weights to be used for billing purposes for the several commodities. Tariffs were changed in accordance with the agreement reached.

Differences of opinion between carriers involving matters of local interchange or switching are frequently referred to us for informal adjustment. Our representatives are instrumental in bringing about amicable settlements.

One of the most intensive movements of perishable freight is the transportation of grapes from California to eastern markets. The grape car plan mentioned in our two last reports was continued this year with some minor modifications. This plan operates only during periods of car shortage, but by reason of the plan requiring advance information as to car requirements for a definite period the carriers can better meet the needs. Furthermore, inflated car orders so common in the past are greatly curtailed. Our service agents give particular attention to the return movement of the empty refrigerator cars and whenever they find the movement sluggish corrective action is taken.

Other seasonal movements of perishables from various producing sections were handled expeditiously.

The transportation of grain is observed from field to elevator in many localities. If the car supply appears inadequate or congestions appear imminent at terminals, elevators or elsewhere, we are promptly advised and corrective measures are adopted.

The movement of coal in all regions was particularly free from interruptions during the year.

In connection with car-service matters various other items received our attention. During the seasonal movement of cotton in the South and Southwest the traffic was watched with a view of preventing congestions at concentration points and ports of export referred to in previous reports. There were no serious congestions this year. Complaints with respect to express service, train service, and the weighing of commodities were informally handled with the carriers.

SERVICE ORDERS

Since our last report we have found it necessary to exercise our emergency powers in one instance.

On November 3 and 4, 1927, unprecedented rainfalls occurred in central New England, causing floods which destroyed bridges, roadbed, and other property of railroads in that section. The consequent suspension of operations on various lines or portions of lines made it necessary to establish new or unusual routes for the movement of such traffic as could be moved at all. Accordingly Service Order No. 47 was issued November 8, 1927, directing all lines serving New England to forward traffic by routes most available to expedite its movement and prevent congestion without regard to routing instructions or the ownership of cars. Upon the final restoration of service on all lines affected this service order was vacated August 22, 1928.

Service Order No. 46, referred to in our last report, was vacated July 2, 1928.

EFFICIENCY AND ECONOMY OF OPERATION

The matter of interchange received much attention. Complaints were made by consignors with respect to delayed deliveries. Upon investigation it was found that traffic in terminal interchange was hauled past local interchange points to distant yards and delivered via indirect routes, thus causing a waste of transportation and loss of time and money to the consignor. Such conditions were corrected. In other instances improper and irregular interchange practices were not found in keeping with efficiency and economy of operation. Cars were offered in bad-order condition to the receiving carrier as were cars which were not at home on the receiving line. Such cars were being shuttled back and forth between receiving and delivering lines. Informal conferences between the transportation and mechanical departments have resulted in more rigid car inspections and closer supervision.

There is under way an investigation concerning the cost of construction and repair of railway equipment at outside shops.

Carriers by steam railway are required by our order of July 6, 1925, to file with us copies of contracts or agreements with construction or repair shops, other than their own, for the repair or rebuilding of locomotives, cars, or other equipment. The extent of the work sent to outside shops is indicated by the following statement, which includes contracts or agreements made or in effect during the 3-year period July 6, 1925, to June 30, 1928:

Summary of railway equipment contracted for repairs in outside construction or repair shops

In addition to the above there are contracts for the repair and maintenance of equipment which do not indicate the number of units of equipment repaired or maintained, contracts which indicate a minimum or maximum number of cars to be repaired, contracts that

do not indicate any number of units, and contracts made between affiliated companies for repair or maintenance of all equipment of one of the contracting parties. Two contracts cover the lease of shops to contractors and the repairing of lessors' locomotives by the contractors. We therefore do not have information relative to the number of units repaired under this class of contracts.

These contracts are analyzed and such further investigations are made as are warranted.

Improved design of new equipment, maintenance efficiency and fuel economy are reflected in the following table:

Fuel consumption, freight locomotives, eight months ended with August 31

The improved general condition of rolling equipment is shown in the following statement:

Percentage of locomotives and freight cars unserviceable, United States

TRANSPORTATION OF EXPLOSIVES AND OTHER DANGEROUS ARTICLES

Since our last report regulations for the safe transportation of explosives and other dangerous articles by land were amended by three orders containing 43 new or changed paragraphs, and 16 new or changed specifications for containers. Further matters under consideration include changes in 7 paragraphs of the regulations and 4 new and changed specifications for containers.

Violations of our regulations governing the switching of cars containing explosives were found in connection with hump yard classification of cars. There were instances where cars containing explosives were cut off while in motion, and other instances of drifting cars being allowed to strike cars containing explosives. Such practices were corrected. Import shipments of fireworks containing pow

dered aluminum and a chlorate were found in transit packed in fiber board containers, contrary to our regulations that wooden containers be used for this type of fireworks.

Accidents in all shipments of explosives and other dangerous articles in 1926 compared with 1927 were as follows:

Inflammable liquids caused 93 per cent, or $604,030, of all property losses. This loss, however, shows a reduction of 41 per cent from 1926. Gasoline losses were $333,575, or 46 per cent less. Accidents in explosives shipments only, in 1926, compared with 1927, were as follows:

Railroad statistics show that transportation was furnished in 1927 for all explosives moved in the United States and Canada, including a total of about 500,000,000 pounds of dangerous explosives, without any loss of life or injury to life and with a total property loss of only $45, as above indicated. The volume of gasoline transported in 1927 was materially greater than in any previous year and yet the total property loss, including that for fires and leakages, $333,575, was 44 per cent less than the average property loss for the previous six years.

REGIONAL ADVISORY BOARDS

We have referred in previous reports to the regional advisory boards organized by the car service division of the American Railway Association. These boards are composed of carrier and shipper representatives and subjects of mutual interest are discussed at periodic meetings. There has been no increase in the number of boards functioning during the year. The country is now divided into fourteen regions.

COOPERATIVE TESTS

In previous reports references have been made to the tests and studies which were conducted in cooperation with the Department