With the outbreak of World War II, in 1939 the Federal Government formed the Commonwealth Land Transport Board (CLTB) to take responsibility for the country's land transport networks. It had the power to override the decisions of the State railways. In 1942, the CLTB appointed the Commissioner of Railways in Western Australia, Joseph Ellis, to investigate the capacity of Australia's narrow gauge network and recommend what locomotives should be purchased. Ellis recommended that three variations of Garratt locomotive be purchased; heavy, medium and light.