The problem reviewed in this article is restricted to organized compulsory systems for ensuring the regular distribution of specified quantities of commodities or groups of commodities to consumers. Systems of rationing goods to producers or traders or of determining priorities or allocations to them are not considered, even though they result in shortages to consumers. Nor is attention directed to voluntary schemes of rationing introduced to meet shortages by retailers who may decide to sell the commodities concerned only to their regular customers or to allow each customer only a small amount of the commodity. Voluntary methods may be adequate for dealing with shortages of less essential goods or with temporary shortages of necessaries, but are not effective for meeting continuing shortages of necessaries. Such systems are distinct from that of consumer rationing, and would require separate review, which in dealing with Great Britain would be concerned with Limitation of Supplies Orders by which traders receive only a fraction of their peace-time supplies, and with the consequences of such Orders.

Consumer rationing has its greatest value where supplies of necessaries are short and are yet available in sufficient quantity to give each consumer a reasonable amount if supplies are equitably distributed. Until rationing is introduced shortages result in rush to buy supplies so that the shortage is aggravated. Some purchasers who have time and money go round from shop to shop buying such quantities as they can obtain to build up a private stock, and thus deprive others of their fair share of the limited supply. Queues are formed outside the shops and much annoyance and uneasiness results. These and other difficulties are avoided when rationing is introduced, and the psychology of the public towards the shortage is improved.