The Turán number $\text{ex}(n,H)$ of a graph $H$ is the maximal number of edges in an $H$-free graph on $n$ vertices. In $1983$ Chung and Erdős asked which graphs $H$ with $e$ edges minimize $\text{ex}(n,H)$. They resolved this question asymptotically for most of the range of $e$ and asked to complete the picture. In this paper we answer their question by resolving all remaining cases. Our result translates directly to the setting of universality, a well-studied notion of finding graphs which contain every graph belonging to a certain family. In this setting we extend previous work done by Babai, Chung, Erdős, Graham and Spencer, and by Alon and Asodi.