ties. The situation at New York is complicated by the large amount
of general shipping using the port, the diversified interests, even
those of the government, and the complicated jurisdiction. An effort was
made to bring about such a consolidation and unification as to secure
greater co-operation with increased efficiency. To this end the War
Board for the Port of New York was established in November, 1917. It was
vested with full power and authority to make rules and regulations for
operating the facilities of the port, to determine priorities, and to do
what was necessary to provide for the prompt and economical dispatch of
the business of the government in and about the port. Mr. Irving T. Bush
was selected as the board's representative, with the title of chief
executive officer. In addition to representing the board he was to
arrange for the co-operative use of piers, warehouses, lighterage,
terminals, railroads, trucking, and all other transportation facilities
in and about the port.

In addition the need was felt for having a shipping expert closely
associated with the Embarkation Service, familiar with the facilities at
various ports, so that he could properly assign ships, select ships for
the cargo to be moved, and arrange for their loading. Mr. Joseph T.
Lilly was selected for this work and appointed director of embarkation.

In February, 1918, the available cargo ships were not sufficient to
carry the supplies needed for maintaining the troops overseas. To secure
the requisite additional tonnage necessitated taking ships from the
existing trade routes and determining from what imports and exports they
could best be spared without interference with those which were
absolutely necessary. This brought about a new situation which could be
handled only by those having a knowledge of the trades as well as the
characteristics of various ships serving them, since some of them were
suitable for War Department needs and some were not. It had happened
that an advantageous exchange of ships could have been made with the
Allies by which valuable time could have been saved in getting over
cargo, but there was lack of knowledge as well as lack of authority. The
whole situation was gone over at a conference between the Secretary of
War and the chairman of the Shipping Board, as a result of which the
Shipping Control Committee was created, consisting of Mr. P. A. S.
Franklin, chairman; Mr. H. H. Raymond; and Sir Connop Guthr