Meanwhile, however, another development was going on, namely, the consolidation of these small railroads into trunk lines or long stretches of railway. The reason for this consolidation was the opportunity to make larger earnings from through traffic and at the same time to give better service. The opening-up of the West led to the building of new trunk lines and to further consolidations, especially during the years immediately following the Civil War. In this way single railroads spread themselves far outside the territory of a single state; their tracks ran into many states. [Sidenote: But this freedom from control was abused.] The corporations controlling such trunk lines became big and powerful. They fixed rates to suit themselves and often favored one section of the country at the expense of others, or gave to large shippers an undue advantage over the smaller.[161] Where there was but one railroad in any district everyone was at its mercy. Exorbitant rates could be charged. On the other hand, where there were competing lines between two cities the rivalry of the roads often forced the rates down to a point where goods were carried at a loss. Sometimes the competing roads, realizing the folly of this competition, formed a “pool” or agreement to share the traffic proportionately, and then each put up its rates to a high level. These practices were inimical to the best interests of commerce. They gave rise to so much complaint that Congress eventually responded by placing the interstate railroads under government regulation. This it did by the Interstate Commerce Act of 1887. [Sidenote: The beginnings of federal regulation.] =The Interstate Commerce Act of 1887.=—By the provisions of this act and the various amendments which have been made to it during the past thirty-five years, all corporations engaged in interstate commerce (which includes not only railroad companies, but express, sleeping car, telegraph, and telephone companies) must maintain reasonable rates; must make these rates public; and must not discriminate in favor of any locality or shipper. The formation of “pools” is illegal; the granting of free passes to other than railroad officials is forbidden; and all the important activities of the railroads are subject to governmental supervision. These various provisions were not all enacted in 1887. The legislation of that date merely made a substantial beginning. Several amending laws, passed from time to time during the past thirty-five years, have steadily extended the scope of regulation and have also endeavored to secure greater safety in the operation of the railroads. [Sidenote: Organization and work of the I. C. C.]