But absolute uniformity cannot be obtained under the widely different conditions which prevail in different sections, without great loss and sacrifices somewhere. A road, for instance, competing with a river or canal must adjust the classification of the particular kinds of freight best adapted to river or canal transportation so as to secure the traffic in competition with boats. It must almost entirely disregard bulk, value, and all other conditions upon which a road not affected by this particular kind of competition arranges its classification. Uniformity would either force one of them to lose a legitimate business, or the other to reduce reasonable rates. These rates and classifications are the battle-ground for all the innumerable rivalries of trade and commerce. Every city is here at war with every other city, every railroad with every other road, every industry with those which rival it, and every individual shipper is a skirmisher for a little special rate, or advantage, all to himself. State legislatures and commissions, Congress, and the Interstate Commerce Commission are the heavy artillery which different combatants manage to bring into the contest. On these rates probably a million dollars are collected every day, yet it is very rarely that the _positive_ rates are fought over or complained of. Their average is considerably below that of the average rates of any other country in the world, even though other nations have cheaper labor and denser populations. Fifty cents for carrying a barrel of flour a thousand miles cannot be called exorbitant, and, indeed, the retail prices paid for bread and clothing would probably not be reduced in the slightest were the transportation of all such articles absolutely free. But the battle is over the _comparative_ rates to different points, over different routes, and for different commodities.[19] Passenger rates are established in much the same manner as freight rates. There are passenger-agents' associations and conventions, and they fight as do the freight men over comparative rates and differentials, and commissions to agents. The last within a few years has been a fearful abuse, and is not yet entirely abolished. This will illustrate: [Illustration: (Diagram of railways connecting A to E.)]