were limited, so that a continuous and even
distribution might prevent shortage and high prices; contracts for
future delivery were limited again to secure an equal distribution and
lessen the possibility of speculative profits from the rising market.
Wasteful and expensive practices were forbidden. All these means were
capable of rather definite application. But a greater difficulty came in
the equally important and necessary work of limiting profits and
securing a more direct distribution from manufacturer and large food
handler to consumer.

The many regulations and the varying activities necessary to achieve
these needs were mostly looked after by a Division of Distribution and
certain allied divisions, devoting their attention to special groups of
commodities. The principal division was under the immediate direction of
Theodore Whitmarsh, one of the most vigorous and able of Hoover's
volunteer helpers. Under Hoover's direction Whitmarsh and his associates
at the head of the special commodity divisions worked out the manifold
details of a regulatory system which was gradually extended to a most
varied assortment of foodstuffs, trades and manufactures.

At the end of 1918 over 250,000 food-handling corporations, firms, and
individuals were under Food Administration licenses. Meat, fish,
poultry, eggs, butter, milk, potatoes, fresh and dried vegetables, and
fruits, canned goods, the coarse grains and rice, vegetable oils,
coffee, and such various commodities accessory to food-handling, as ice,
ammonia (for ice-making), arsenic (for insecticides), jute bags, sisal,
etc., were under direct control to greater or less extent, except when
in the hands of the actual producers and the ultimate retailers. And by
the indirect means of a wide publicity of "fair prices," and by an
influence exerted through the wholesalers, even the retailers were
brought into some degree of agreement or control in connection with the
Food Administration effort to eliminate unfair dealing and food
profiteering.

But more important than the control of any one of these many foods, or
perhaps than of all of them together, and more discussed both in Food
Administration days and since, was the control of wheat, and, as a part
of it, of flour and bread. Some of the methods and results of food
conservation as especially applied to wheat have already been referred
to, but here we are especially concerned with the methods of
governmental control as app