<P> In line with its "business as usual" policy, the government was initially reluctant to try to control the food markets . It fought off efforts to try to introduce minimum prices in cereal production, though relenting in the area of controlling of essential imports (sugar, meat and grains). When it did introduce changes, they were only limited in their effect . In 1916, it became illegal to consume more than two courses whilst lunching in a public eating place or more than three for dinner; fines were introduced for members of the public found feeding the pigeons or stray animals . </P> <P> In January 1917, Germany started using U-boats (submarines) in order to sink Allied and later neutral ships bringing food to the country in an attempt to starve Britain into surrender under their unrestricted submarine warfare programme . One response to this threat was to introduce voluntary rationing in February 1917, a scheme said to have been endorsed by the King and Queen themselves . Bread was subsidised from September that year; prompted by local authorities taking matters into their own hands, compulsory rationing was introduced in stages between December 1917 and February 1918, as Britain's supply of wheat stores decreased to just six weeks worth . It is said to have in the most part benefited the health of the country, through the' levelling of consumption of essential foodstuffs' . To assist with rationing, ration books were introduced on 15 July 1918 for butter, margarine, lard, meat, and sugar . During the war, average calorific intake decreased only three percent, but protein intake six percent . </P> <P> Total British production fell by ten percent over the course of the war; there were, however, increases in certain industries such as steel . Although Britain faced a highly contentious Shell Crisis of 1915 With severe shortages of artillery shells reported from the Western Front . In 1915, a powerful new Ministry of Munitions under David Lloyd George was formed to control munitions production . </P> <P> The Government's policy, according to historian and Conservative politician J.A.R. Marriott, was that: </P>

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