The 'bean counters' were probably looking at the ruling grade and wondering how they'd have to decrease the tonnage rating of revenue freight if a extra tender load of water was added. A full six axle tender can weigh as much as two loaded 40 ft boxcars. The savings at watering facilities could only happen if they were not needed for local work or emergencies. The momentum of 'We've always done it this way',the direct cost of hauling water around, the issues of turning and maintaining the water bottles would make it a tough sell. Railroad managements were not blind to what other railroads did. I'd bet several railroads analyzed the idea and had studies that proved their decision was best for their railroad/division. rh