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The Union Railroad was a switching and transfer line owned by U.S. Steel, serving a number of plants in the area and connecting with six trunk line railroads. Operation was only at low speed, thus a leading truck's stability was not required. The intent was to eliminate helper requirements on grades, and thus a locomotive larger than the Union's previous switchers and 2-8-0 "Consolidations" was needed. Ten driving wheels allowed the application of sufficient tractive effort within the axle load limits of the line, and the requirement for a large firebox and plentiful steam-raising ability necessitated the trailing truck. To increase tractive effort still further, a booster engine was fitted to the leading tender truck. The unusual wheel arrangement was also a result of the turntable restrictions on the total wheel base.