treaty's reparation figures "generally exceed Germany's capacity" to pay. He said that was the "safe maximum figure", but even then he did "not believe that [Germany could] pay as much". He said the Reparation Commission was a tool that could "be employed to destroy Germany's commercial and economic organization as well as to exact payment". In Keynes' opinion, the reparation figure should have been fixed "well within Germany's capacity to pay" so to "make possible the renewal of hope and enterprise within her territory" and to "avoid the perpetual friction and opportunity of improper pressure arising out of the Treaty clauses". Keynes identified reparations as the "main excursion into the economic field" by the Treaty of Versailles, but said that the treaty excluded provisions for rehabilitating Europe's economies, for improving relations between the Allies and the defeated Central Powers, for stabilizing Europe's new nations, for "reclaim[ing] Russia", or for promoting economic solidarity between the Allies. Coal provides an example of these destabilizing effects in Germany and beyond. Keynes said the "surrender of the coal will destroy German industry" but conceding that without coal shipments as reparations, the French and Italian industries damaged directly by the war or indirectly by damage to coal mines would be affected. He writes that this is "not yet the whole problem". The repercussions would also affect Central and Northern Europe, and neutral states such as Switzerland and Sweden, which made up for their own coal deficiencies by trading with Germany. Likewise, Keynes said Austria would now be consigned to "industrial ruin" as "nearly all the coalfields of the former Empire lie outside of what is now German-Austria". Campbell writes that the "apparent majority did not regard the treaty as perfect". Bernard Baruch writes in The Making of the Reparation and Economic Sections of the Treaty that most believed it to be the best agreement obtainable under the circumstances and that it was a minority that attacked the treaty, but these attacks "centered upon its economic provisions". James T. Shotwell, writing in What Germany Forgot, said, "the only 'unendurable servitudes' in the treaty were in the sections on Reparation and the Polish settlement and raised the question as to what part of Germany's grievance against the peace lay in the substance of its exactions and what part in the manner of their imposition". Sir Andrew McFayden, who also represented the British Treasury at the peace conference