on that confronts the other. If the parties immediately
concerned cannot reach an agreement, a third party may mediate and try
to conciliate opposition. If that fails, the next natural step is
voluntarily to refer the matter in dispute to arbitration, or by legal
regulation to compel the disputants to submit to arbitration.

201. =Boards of Conciliation.=--The history of peaceful attempts to
settle industrial disputes in the United States helps to explain the
methods now frequently employed. In 1888, following a series of
disastrous labor conflicts, Congress provided by legislation for the
appointment of a board of three commissioners, which should make
thorough investigation of particular disputes and publish its
findings. The class of disputes was limited to interstate commerce
concerns and the commissioners did not constitute a permanent board,
but the legislative act marked the beginning of an attempt at
conciliation. Ten years later the Erdman Act established a permanent
board of conciliation to deal with similar cases when asked to do so
by one of the parties, and in case of failure to propose arbitration;
it provided, also, for a board of arbitration. Meantime the States
passed various acts for the pacification of industrial disputes; the
most popular have been the appointment of permanent boards of
conciliation and arbitration, which have power to mediate,
investigate, and recommend a settlement. These have been supplemented
by State and national commissions, with a variety of functions and
powers, including investigation and regulation. The experience of
government boards has not been long enough to prove whether they are
likely to be of permanent value, but the results are encouraging to
those who believe that through conciliation and arbitration the
industrial problem can best be solved.

202. =Public Welfare.=--There can be no reasonable complaint of the
interference of the government. The government, whether of State or
nation, represents the people, and the people have a large stake in
every industrial dispute. Society is so interdependent that thousands
are affected seriously by every derangement of industry. This is
especially true of the stoppage of railways, mines, or large
manufacturing establishments, when food and fuel cannot be obtained,
and the delicate mechanism of business is upset. At best the public is
seriously inconvenienced. It is therefore proper that the public
should organize on its pa