"Those great corporations containing some tendency to monopoly, which we have grown to speak of rather loosely as trusts, are the creatures of the State, and the State not only has the right to control them, but is in duty bound to control them wherever the need for such control is shown. There is clearly a need of supervision—need to exercise the power of regulation on the part of the representatives of the public, wherever, as in our own country at the present time, business corporations become so very strong, both for beneficent work and for work that is not always beneficent. It is idle to say that there is no need for such supervision. A sufficient warrant for it is to be found over and over again in any of the various evils resulting from the present system, or, rather, lack of system. "There is in our country a peculiar difficulty in the way of exercising such supervision and control because of the peculiar division of governmental power. When the industrial conditions were simple, very little control was needed, and no trouble was caused by the doubt as to where power was lodged under the constitution. Now the conditions are complicated, and we find it difficult to frame national legislation which shall be adequate, while as a matter of practical experience State action has proved entirely insufficient, and in all human probability cannot or will not be made sufficient, to meet the needs of the case. Some of our States have excellent laws—laws which it would be well indeed to have enacted by the national legislature. But the wide differences in these laws, even between adjacent States, and the uncertainty of the power of enforcement result practically in altogether insufficient control.