76 COMMISSION ON COUNTRY LIFE 



readily from the published tariffs the actual rate 

 on any given commodity between two points. 

 Railway rate-making is fundamentally a matter 

 of public importance. The rates are a large factor 

 in the development of population; in many 

 instances the railway rates determine both the 

 character of the population and the development 

 of industry. The railway companies, by their 

 rates, may decide where the centers of distribu- 

 tion shall be, what areas shall develop manufac- 

 tures and other special industries. To the extent 

 that they do this they exercise a purely public 

 function, and for this reason alone, if for no other, 

 the government should exercise a wise super- 

 vision over the making and publication of rates. 

 Favoritism to large shippers has been one of the 

 principal abuses of the transportation business 

 and has contributed to the growth of monopolies 

 of trade. While rebating is largely discontinued, 

 it is very generally believed that this favoritism 

 is still practiced, in various forms, to an entent 

 that works a hardship on the small shipper and 

 the unorganized interests. Complaint is not con- 

 fined to steam roads alone but is directed towards 

 the trolley lines as well. There is a feeling that 



