From the high central tower of the Fuel Administration, the people of the United States for the first time caught a fleeting glimpse of the coal industry as a whole and of the relation it bears to the national and international industrial life. They discovered that coal bears much the same relation to our modern industrial structure that the water supply bears to the life of a great municipality. When America entered the war, she resembled with respect to her primary source of mechanical energy a municipality dependent for its water supply upon eleven thousand separate wells, owned and operated primarily in their individual interests by thousands of enterprising individuals, with hundreds of separate delivery systems jostling in the highways that needed to be kept clear for soldiers and guns, its people bidding against one another, offering fabulous prices for water, yet parched with thirst. "Basic industries and transportation," writes Dr. Garfield, in describing what he saw as head of the Fuel Administration, "were caught in a vicious circle. Steel could not be manufactured without coke, coke could not be made without coal; coal could not be commercially produced without transportation; transportation was dependent upon coal.... Industrially we were in a wild scramble of manufacture, production, and shipment.... It was no longer a question of withholding coal from non-war industries but rather a question whether any coal could much longer get through to any consumer." With eleven thousand coal mines in operation, the engines of the nation were running cold for lack of coal. Created to avert impending catastrophe, the Fuel Administration went about the service of the nation much as an engineer would tackle the job of converting eleven thousand wells into a modern system of water supply. It dealt with the coal fields as a single great reservoir of fuel and power. It worked out a budget covering the needs of the essential industries, the railroads, steel plants, munition factories, gas and electric utilities, as well as the domestic consumers. It made maps charting the coal-producing and coal-consuming territories, divided the nation into regional zones, established these zones as fuel reservoirs, created a distributing organization by zones and states like a great system of water mains. It called the experienced operators and technical managers into public service and entrusted to them the technical problems of production and distribution. It fixed prices limiting profits to an estimated fair return. It converted the miners' union and the operators' organizations into administrative arms of the government for the industry, with committees for conference and conciliation at the mines, and in the various producing districts, heading up in a Bureau of Labor at Washington as a final court of appeal for the adjustment of disputes over wages and working conditions.