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E

SUGGESTIONS
FOR THE .
BETTER MANAGEMENT OF THE CIWIL CONCERNS
OF
THE NAWY:
TAIXEN FROM THE PAPERS OF THE LATE
BRIGADIER-GENERAL SIR SAMUEL BENTHAM, K.S.G.
INSPECTOR-GENERAL OF NAVAL WORKS,
AND AFTERWARDS A COMMISSIONER OF THE NAVY.
BY
M. S. B.
WITH
OBSERVATIONS ON THE REPORT OF
THE SELECT COMMITTEE OF THE HOUSE OF COMMONS
ON NAVY ESTIMATES, 1848.
LONDON :
PRINTED FOR
LONGMAN, BROWN, GREEN, AND LONGMANS,
PATER NOSTER-ROW.
1856).

LonDon :
SFottiswoodes and Shaw,
New-street-Square.
+&L ,
3C.R. £
1 - 2 - 4 ST
5 i t w 3
P. R. E. F. A. C. E.
A VERY general belief appears to be entertained
that the effective naval force of the country might
be upheld at a cost far below that which the nation
is now subjected to; a persuasion which the Report
of the Select Committee on Navy Estimates, 1848,
appears fully to confirm. An attentive perusal of
that Report, together with an examination of its
voluminous Appendices, brought back to recollection
that half a century ago successive First Lords of
the Admiralty, the Earls Spencer and St. Vincent,
were both of them convinced that no partial regu-
lations could prevent waste and abuse in the civil
branch of the Naval Department, since the system
of management was in itself fundamentally at
fault. Lord Spencer first embraced this opinion
in consequence of proofs, exhibited to him by the
Inspector-General of Naval Works, of such malad-
ministration in the Royal Dockyards as would
A 2
4 FREFACE.
be inevitably ruinous in any private concern;
and by his observation that the principles of good
management customary in private manufactories
were equally applicable to the great public ones
subservient to the construction, outfit, and uphold-
ing of our Navy. Lord St. Vincent, in his military
career, had himself witnessed so much mismanage-
ment in the several naval establishments, as to have
led him entirely to coincide in the Inspector-
General's representations. The consequence was,
that Earl Spencer, during his naval administration,
confided to the Inspector-General the contrivance
of a new system of management for the civil busi-
ness of the Naval Department; and that, on the
change of Administration which took place in 1801,
Lord St. Vincent adopted a Report to the King in
Council already prepared by the preceding Board
of Admiralty, in which it was said: “We are of
opinion that the making some fundamental altera-
tions in the system under which the business of the
Dockyards is at present conducted would be at-
tended with advantage to the public service, and
under that impression we have made some progress
in the preparation of a new System of Management,
PREFACE. 5
founded on general principles of acknowledged effi-
cacy.” This Report was sanctioned by the King in
Council, 21st May, 1801. Lord St. Vincent caused
some partial regulations to be carried into effect, as
recommended in that Report, amongst others those
for the better management of timber, the intro-
duction of which was confided to the Inspector-
General ; and he was also charged with the com-
pletion of the intended new system, as he had
proposed it should be carried out throughout the
whole of the Naval Departments subordinate to the
Board of Admiralty.
The observations and suggestions now laid before
the public have been put together on a comparison
of the measures indicated, and evils brought to
notice, by the Select Committee of 1848, with those
that Lords Spencer and St. Vincent had intended
for the correction of similar extravagance. Both
official and private correspondence has been referred
to, as well as many papers that in private communi-
cation with Lords Spencer and St. Vincent were
submitted to their Lordships by the Inspector-
General, and approved of by their Lordships. The
opinions are those that were entertained by him as
A 3
6 PREFACE.
they remain recorded in various documents. As
to the facts stated in the Observations and Sug-
gestions, they are, nearly the whole of them, taken
from the Blue Book of the Committee of 1848; the
remaining few from authentic documents that could
be produced, if occasion should require it; and, in
as far as possible, the very words of the Inspector-
General have been employed for the elucidation of
his opinions.
M. S. B.
Hampstead, July, 1850.
S UG G E S T I O N S,
&c. &c.
THE Report of the Committee on Navy, Army and
Ordnance Estimates, together with the Minutes
of Evidence and the Appendix, afford an immense
mass of information respecting naval concerns,
such as, there seems good reason to hope, will,
without cramping the efficiency of our Navy, tend
to a diminution of expense in upholding it. The
investigations entered into are the more valuable,
the members of the Committee being not only of
different opinions as to general policy, but there
being amongst them representatives of several of
the naval administrations of the last twenty years,
so that the measures of the different Boards of
Admiralty during that period were fairly examined
into. The labour bestowed by the Committee has
been immense in examining witnesses and papers
called for; the Report, with the Minutes of Evi-
dence and the Appendix, forming together a Blue
Book of no less than 1,112 pages. Remarkable
impartiality is manifested in the Committee's patient
attention to complaints of mismanagement, as also
A 4
8 SUGGESTIONS FOR THE BETTER
their extreme care in their endeavours to elicit
truth; they lament, however, that although they
perceive the need of reform in a variety of instances,
yet their want of technical and practical knowledge
renders it impossible for them to indicate the
means by which that reform could be advan-
tageously effected.
To a deficiency in that same technical and prac-
tical knowledge, unavoidably so frequent in supe-
riors of the Admiralty, may be attributed the various
imperfections existing in details of management in
the civil branch of naval service; imperfections
which lead to a needless or extravagant expendi-
ture of the public money; for it is not conceivable
that any administration would authorise outlay, but
in the belief that it would be productive of some
corresponding advantage. Looking back, indeed,
for more than half a century, to the several Boards
of Admiralty, different as have been their political
views, not one of them has been considered as in-
fluenced by corrupt motives for the measures they
sanctioned; nay, most of them appear to have
used their best endeavours to produce desired
effects with good economy, and many of them have
sought to improve the management of the business
under their control; yet retrenchment of ex-
penditure, now so loudly called for, and so greatly
needed, has of late not been effected in the Naval
Department at least.
The Committee report upon the Estimates accord-
ing to their numerical order, observing that it will
CIVIL MANAGEMENT OF THE NAVY. 9
be necessary to examine them in detail, as “in
each of the years 1844–5, 1845–6, 1846–7, there
has been an excess of expenditure, and it has
been admitted that when the accounts are closed
for the year 1847–8, a further grant will be
again required for a similar excess.”
They observe, on examining vote No. 1., that
the “number of men voted determines the effec-
tive force for the ensuing year.”
It seems that here a blind adherence to ancient
usage stands in the way of useful reform of the
Naval Estimates. It must be admitted that the
efficiency of our Navy rests on its power of annoy-
ance to and destruction of an enemy. Before the
invention of gunpowder, the amount of that annoy-
ance depended on the number of men employed in
naval warfare. The implements of destruction were
then no other than weapons wielded by the hand
of man, and that whether adapted to strike objects
within reach, or missiles thrown to a distance by
hand, or even sometimes masses of great weight
discharged by engines; but still the force employed
to throw those missiles was no other than the mus-
cular force of man : at that time, then, the number
of men did determine the amount of effective force.
Now, on the contrary, since the introduction of
gunpowder, the number of men is but of secondary
importance; it is now the quantum of shot that
can be thrown in a given time, which constitutes the
amount of effective force in our Navy. If this be
true, it is therefore the quantum of shot which
10 SUGGESTIONS FOR THE BETTER
should now form the basis on which Naval Esti-
mates should be grounded. It is remarkable that
a particular, apparently so obvious and undeniable,
should hitherto have escaped observation by the
many who have taken an interest in naval concerns;
or that it should not have been acted on in drawing
up the Estimates; yet so entirely has it been neg-
lected, that neither in the Report of the Committee,
nor in any part of the Evidence before them, nor
in the voluminous Appendix, is there one single
notice of the number and weight of shot that can
be thrown at once from any vessel, or in any given
time; nor is there any attempt to exhibit the ex-
pense of producing any given amount of effective
force. The number of guns in a vessel is repeatedly
stated, their diameters frequently, so also their
length and their weight, yet never the weight of
shot thrown in a broadside. This particular, it is
true, might by calculation be obtained in cases
where the diameter of the guns is specified, or that
the armament consists of such a number of 32-
pounders, for instance; but the important item of
the number of men requisite to work those guns,
as also the rapidity with which they could be fired,
are data which could not be obtained either from
the Report itself or its Appendices.
Were the real effective force of our Navy, namely
the quantum of offensive missile it could throw in
a given time, to be taken as the basis of Navy Es-
timates, much perspicuity, now unattainable, would
be afforded to the House. Besides which, in the
CIVIL MANAGEMENT OF THE NAVY. 11
preparation of such Estimates, numberless items of
improvement of the matériel itself could hardly
fail of presenting themselves, not only to inferiors,
but would also become conspicuous to the superior
authorities. Inadequacy of armament in some ves-
sels, as compared with others more efficiently armed,
would, in drawing up such an Estimate, become
apparent ; the fitness of one variety of gun-carriage,
compared with others, for rapidity of working, and
saving in the number of men required for it, could
hardly fail to lead to great improvements in this
important adjunct to a gun; and to the financier
it would exhibit, to a great degree, the comparative
cost of maintaining a given effective force, as pro-
vided in this or in that description of vessel. Mr.
Ward said, in his evidence to the Committee, that
a ship of the line is the cheapest vessel in the Navy,
a steamer the dearest; but in what respect the
cheapest or the dearest does not appear. The ship
of the line may be navigated, perhaps, at less ex-
pense than the steamer, and the cost in building
and outfit may for the one be less than for the
other; but the question of practical importance is,
Which of the two vessels can throw the greater
weight of shot at any desired point for the same
total cost 7
Were the effective force of our fleet to be taken as
the basis on which other Estimates were grounded,
the number of men required would have to be divided
in the Estimate under three distinct heads: Men
for working ordnance, Men (marines) for thc cm-
12 SUGGESTIONS FOR THE BETTER
ployment of small arms, Men for manoeuvring
the vessel. Each of these divisions would, of course,
be reckoned upon for affording occasional assistance
to the others, and some supernumeraries would be
added to supply losses, as from illness or casualties.
In making up an Estimate of men necessary for
manoeuvring a fleet, much practical information
would be obtained ; such, for example, as the num-
bers required, comparatively to bulk, to work vessels
of different rigs, of which there are so many va-
rieties in use. The extra cost of men to work
steamers would then appear under its proper head,
and not, as now, give an impression that the cost
per man in sailing vessels has increased. The
Committee bring to notice that the average cost per
man, in a first rate, is now about 28/. per annum,
whilst that per man in a steamer is about 40l. : yet,
according to the Estimate, nothing appears to indi-
cate this great difference; but a general average
cost is set down, amounting to 381. 158. per man,
instead of the 36!. 3s. 11d. as heretofore.
Particulars of such a nature cannot be esteemed
irrelevant, since the intention in laying the annual
Navy Estimates before Parliament can be no other
than to afford a correct and clear, though an abs-
tracted, view of the annually varying expenses
attendant on the procurement and maintenance of
a varying quantum of naval force. It is from these
documents that Parliament judges whether money
already voted for this service has been well or ill
employed; as also whether the intended use of
CIVII, MANAGEMENT OF THE NAVY. 13
sums they are asked to vote for the ensuing year
be judicious, economical, and really necessary : but
an Estimate framed as is that of 1848, Vote No. 1.,
cannot afford data sufficient to form an opinion as
to the propriety of such an increase of pay to the
Navy. It appears, however, that there are still
other causes, besides the use of steamers, that have
tended to increase the average rate of pay. There
are now, the Committee state, a greater proportion
of high-paid officers, Flag Officers and Commo-
dores, than there were in the year 1824; but that
the pay of an able-bodied seaman has not varied
since the year 1824, that pay being 1.14s. per man
per lunar month. It also appears that various other
circumstances have tended to increase the average
of pay in the Navy, such as an augmentation of that
of some of the officers, as also an increase upon it
according to length of service. In the Appendix
to the Report, the present pay to able-bodied sea-
men in some other countries is given: in the Ame-
rican navy, 21. 9s. 6d. per month ; whilst in the
French service it is no more than 11. 8s.
The Estimate for Vote No. 1. is deficient in other
important items of detail. It ought to exhibit, under
different heads, the different rates of pay to distinct
classes of the employed, with the numbers in each
class ; as Able-bodied Seamen, Ordinary Sea-
men, Boys, Marines, Marine Artillery, Warrant
Officers, Commissioned Officers; and, in regard to
steamers, those officers and men employed par-
ticularly in the care and management of the ma-
14 SUGGESTIONS FOR THE BETTER
chinery. There accompanies the Estimate, indeed,
an explanatory statement of six pages, from which
many of these particulars may be collected; but it
could hardly be expected that many members of
the House would analyse these details, or make
such abstracts from them as to exhibit at one view
the amount of cost under each of these several heads.
The Committee show that the established comple-
ment of men in Her Majesty's ships and vessels has
been increased since the year 1837, specifying that
in a first rate, of the first class, the augmentation
has been from 790 men to 1,000; and in other
rates much in the same proportion. The reason
for this increase does not appear; nor is it com-
mented on, excepting as to the consequent increased
expense. Were the greatly increased weight of
the missiles our vessels of war are now prepared to
throw exhibited, it would probably appear that a
proportionate increase of men is required to work
the guns.
Little is said by the Committee on the subject of
Marines; their most important observation respect-
ing this corps is, that, “ since the increase of the
steam navy, and the greater use of shell guns, the
marine artillery is a most important branch of the
service.”
Nothing throughout the Blue Book appears to
indicate that the increase of the steam navy has
rendered the marine artillery of more importance
than it was previously, or why able seamen gene-
rally should be incompetent to the use of shells in
CIVIL MANAGEMENT OF THE NAVY. 15
their guns: but, on taking an enlarged general view
of our military force, the marine corps, as a whole,
would be seen to be the arm more generally useful
than perhaps any other.
The peculiar usefulness of the marine corps
arises from its competency to act both at sea and
on land, whether for offence or defence. It is
therefore particularly valuable in a country like
ours, where a long sea-margin has to be defended,
and where we cannot attack a foreign enemy other-
wise than by a naval expedition; at least in so
far as for the conveyance of troops, and for their
protection during debarkation; for the landsman
is usually disabled by sea sickness from exerting
himself on landing, or even for some time after-
wards. But why a separate portion of the corps
should alone be trained to the use of artillery
does not appear. In the year 1833, the whole of
the marines were competent to the working of
great guns; and on many accounts it seems de-
sirable that every man on shipboard should be
capable of this service, and even habitually em-
ployed in it. The due aim and exercise of artillery
are only to be acquired by practice; so that surely it
were more profitable to bestow the cost of training
on men attached for years to the service, as are the
marines, than on the sailor, whose continuance in
it for any length of time is merely voluntary.
The estimate provides for 8,000 marines to be
kept on shore, whilst no more than 5,500 are des-
tined for service afloat. It is not by stationing
16 SUGGESTIONS FOR THE BETTER
this corps in barracks, that the superior efficacy of
it can be acquired or maintained. Sea legs, sea
hands, sea heads, and sea stomachs, are to be ob-
tained only by exercise and habit afloat, and that
more perfectly in small than in large vessels.
Neither is it in barracks built in a style of external
elegance and architectural grandeur, with lofty
apartments for all purposes of parade, as well as of
use, that either officers or men learn to content
themselves with the comparatively limited accom-
modations afforded in vessels of war. The Com-
mittee on Coast Defence, with a view to our great
ports, recommended guard ships as the best means of
defence, and in consequence some ships of the line
have been fitted for this purpose; but, besides these,
it would be well to provide, in the same manner,
for the protection of our lesser ports, mercantile as
well as naval. There are many of our vessels of
war now lying in ordinary that could be usefully
employed for this purpose, and which at the same
time would afford appropriate lodging for marines.
The larger of these vessels would be the guard
ships of our great harbours and best roadsteads,
the smaller ones attached in squadrons for the
defence of our lesser mercantile harbours, and for
the protection of the peaceful inhabitants along the
whole range of our coasts, where only vessels of
shallow draught of water could approach. It would,
in case of war, be from the attacks on such parts of
our island that annoyance would be most to be
apprehended. It is not pretended that either of
CIVIL MANAGEMENT OF THE NAVY. 17
ficers or privates would, when thus on duty, enjoy
an existence as luxurious as when in fixed barracks;
but the nation does not, for the mere purpose of
indulgence, incur the annual expense of nearly a
million and a half, the sum it now costs for the
marines that are kept ashore.
Our Navy are at present but little acquainted
with our coast, particularly the shallow parts of it,
hence the so frequent need of pilots; but, were small
vessels used as lodging for marines, the few naval
officers and seamen that would also be on board
would necessarily become acquainted with our
lesser harbours, and with the dangerous shallows
to be avoided, a collateral advantage of no small
import. So, by a judicious combination of marines
afloat with revenue cruisers, and with the coast
guard, infinitely more success would be obtained
against smugglers than is now ever effected by
existing arrangements. As to evolutions of the
marines on shore, it would depend on Government
to appoint the times when any squadron, or any
number of squadrons, should assemble and debark
the marines for exercise, so that their efficiency for
land as well as sea service should be fully main-
tained.
It might be feared that the putting vessels in
commission for this purpose would occasion much
expense; but the officers and seamen really neces-
sary need be very few: so that taking into account
the expense of keeping ships in ordinary, and of
half-pay to officers, the sum now expended for
B
18 SUGGESTIONS FOR THE BETTER
these purposes would doubtless be found to suffice
for the pay of naval officers and seamen.
There are many exercises which might be con-
sidered as gymnastic, that it would be desirable to
have practised by marines, as eminently useful on
shipboard ; such as rowing with oars, paddles,
sweeps, and other means of obtaining locomotion
in cases of emergency, as the keeping off a lee-
shore, or the coming up with an enemy.
Marines, notwithstanding their acknowledged
importance and usefulness, have hitherto been most
undeservedly considered and treated as an inferior
corps. Marine officers rank below those of the
same grade in the naval service; and the pay of
the marine officer is less than that of an officer of
equal rank in the Navy. Surely it is not reason-
able that a corps competent to a greater variety of
services than any other, should be held in an infe-
rior degree of consideration and respect.
The Committee notice and regret a number of
fluctuations and discrepancies in regard to the
Payment of seamen and marines, as also the dis-
cordance between the estimates for this service and
the sums actually paid in any year. No remedy is
suggested ; but various particulars indicate that
these irregularities arise from the custom of allow-
ing pay and wages to remain a long out-standing
account. To remedy these evils, to avoid compli-
cation of accounts, and to save the expense of a
great number of clerks in the Navy Office, it was
proposed, twenty years ago, that the accounts of
CIVIL MANAGEMENT OF THE NAVY. 19
pay and wages, for both officers and men, should be
made up on board ship at short intervals, a week
or a month. This duty to be performed by the
accountant officer of the ship, the Purser; and,
whenever money could be obtained, the sums due
to be paid by him immediately, or otherwise as
soon afterwards as a ship should come into port.
This proposed measure was grounded on the fact
that it is from documents kept on shipboard, and
from those documents alone, that the pay of a ship's
company is now made out on shore. Every par-
ticular respecting pay is furnished from the ship
itself; it is the responsibility of her officers, and that
alone, which is the guarantee of accuracy. As to
extra trouble to the Purser by such a measure,
so far from an increase of it by settling with the
crew at short intervals, his accounts might thereby
be shortened. So by this means much of the heart-
burnings and disputes now so frequent would be
saved; for the men could no longer fancy that
slops, the receipt of which they had forgotten, had
been charged to them unjustly by the Purser. It
was shown that ample checks on the Purser might
be established, both on board ship and at home,
and the whole business of allotments was provided
for. The labour of the present clerks at home is
little beyond that of making duplicates, in another
form, of the accounts they receive from the ship;
and they become more and more complicated and
difficult to arrange the longer they have been
running on.
B 2
20 SUGGESTIONS FOR THE BETTER
The Committee notice, as being of frequent oc-
currence, that the expenditure for wages to seamen
and marines exceeds greatly the sums voted for
this service. This excess is of course considered
by the Committee as highly objectionable; and they
recommend, as a remedy for this evil, “that the num-
ber of seamen employed should be kept within, or
not greatly exceeding, the number of men voted.”
Many tables and particulars are given relative
to the Victualling of the Navy, “because they ma-
terially concern the health, comfort, and cheerful
obedience of the men serving in Her Majesty's
fleet.” It appears that the rations are so abund-
ant, that savings are very frequently made by the
crews of considerable portions of their daily allow-
ance, and that a compensation for these savings is
made to them in money, according to a fixed rate.
The same rations are issued to every rank, from
the admiral downwards, without distinction. Pre-
served meats have of late years been substituted
on foreign stations once a week, in lieu of salt
meat. Ld. Auckland states that the quality of pro-
visions cannot be better than that of those supplied
to the Navy; and an endeavour is made to induce
the men to forego the accustomed use of spirits, by
giving them more than an equivalent in value of
tea, sugar, &c., but with little effect. It is not
noticed how far a good example has been set them
by their officers, in foregoing their accustomed use
of wine, &c.; but, as sobriety has of late years pre-
vailed among the higher classes generally, it may
CIVIL MANAGEMENT OF THE NAVY. 21
be assumed that this virtue is equally to be found
amongst officers on shipboard. There can be no
doubt that the quantity of provisions allowed is
more than ample, since the statement of savings
made by the crews of Her Majesty's ships, and paid
for to those crews, during the year ending 30th
Sept. 1847, amounted to no less a sum than
26,428l. 13s. 10d.; of which the weight of biscuit
alone was 3,171,443 pounds.
In several years the sums actually expended for
victuals has been less than the sums voted, as much
less in the financial year 1843–44 as 132,445l.
What became of this immense sum does not seem
to have been inquired into ; neither from the papers
furnished can it be discovered whether it was ap-
plied to any other service, or whether it still remains
in the naval coffers. It may indeed be collected
from various documents, that in some cases money
not used for the services for which it was voted has
been accounted for at the Treasury, also that in
other cases such surpluses have been employed for
other works or other services. These circum-
stances indicate, that, in the annual Estimates laid
before the House, the actual expenditure of the
preceding year ought uniformly to appear in the
Estimates of the succeeding one, and that under the
head of each separate vote, so that such surpluses
should go to the diminution of that vote for the
year to come.
The Return showing the annual expense of keeping
an 80-gun ship at sea brings many more particulars
B 3
22 SUGGESTIONS FOR THE BETTER
to account than it is usual to find in such a Return ;
but amongst them is not to be found an item which
in any private mercantile concern would never fail
to be exhibited, namely, interest on the capital
sunk in building the ship and furnishing stores;
in this instance that interest amounts to above
2,700l. for the first year, though diminishing after-
wards as the value of the ship diminishes by wear
and tear, for which an allowance is made. That
interest is paid on all sums taken up by Govern-
ment, the public know to their cost; but public
Departments, it may be said, are blind to the mis-
chievous consequences of neglecting this particular,
although it has frequently been brought forward to
the notice of the Naval Department.
Another item not included in that Return is ord-
nance stores. However, the Committee do seem to
have considered that guns and ammunition really
constitute a part of a ship of war; and consequently
they obtained from the Ordnance Office an estimate
of the value of those articles for an 80-gun ship, which
is set down as being about 11,732l., and that it is
believed four per cent on this sum will cover wear
and tear. This sum is probably for artillery only,
not including small arms, cutlasses, and other wea-
pons, nor it would seem ammunition, since the
expenditure of this article cannot be estimated;
it must necessarily, even in time of peace, depend
upon such circumstances as the greater or less fre-
quency of gun-exercise on board the ship, as also of
Salutes.
CIVIL MANAGEMENT OF THE NAVY. 23
In the Quarterly Review for June 1848 it was
proposed that Ordnance stores should, at our naval
arsenals, be put under the charge of the naval
storekeeper; this was to save the salaries of ord-
nance storekeepers at those ports. It is a desirable
measure on that account alone; but advantages far
greater than that would result, were the naval
business of the ordnance made over to the Naval
Department, excepting only the providing of the
guns themselves, the shot and shells, and the fabri-
cation of gunpowder, for which services the Ord-
nance is already provided with the costly esta-
blishments requisite for their manufacture and proof.
The making of gun-carriages, for instance, is a
manufacture which cannot anywhere be carried on
so advantageously as in a Dockyard. It is only
there that are known the modifications requisite in
a gun-carriage to suit it to those parts of a vessel
which are variable; the workmanship is analogous
to the general works of the yard; and much of the
timber which on conversion is found to be unsuit-
able for the construction of a ship, would be turned
to good account in the fabrication of gun-carriages.
But a far more important reason for the transfer
to the Dockyards of business of this nature arises
from the trouble, the delay, the disappointment in
war time, attendant on the need for reference to
the Ordnance Board. As it is, when a vessel has
to be armed, the Dockyard must furnish a number
of particulars and dimensions; these have to pass
B 4
24 SUGGESTIONS FOR THE BETTER
through the Superior in town; the Admiralty have
then to request the Ordnance to furnish the needful
accordingly; and the transaction has again to be
bandied through the several offices before it can
be known at the Dockyard whether the carriages
will be received at all, or, if to be received, when.
It happened last war that an intended expedition
failed in consequence of these delays, though the
Dockyard artificers had worked even beyond their
strength, so that many of them were laid up by
their exertions in expediting the ships; but, when
completed, neither guns nor carriages were ready,
so much time had been lost in the transmission of
particulars to and fro.
It is a fact most remarkable, and fraught with
many evils, that in the whole of the Naval Depart-
ment it is not made the duty of any branch of it,
or of any individual in it, to see to the due arming
of ships and vessels of war. A natural conse-
quence of this deficiency has been the great diver-
sity observable in the artillery with which vessels
of war are armed; a diversity which extends to
all the particulars of number, size, weight of the
guns, mode of mounting them, as also the descrip-
tion and weight of missile to be thrown. In every
great division of naval business, excepting that of
armament, it has been thought expedient to employ
an officer particularly skilled in the branch he is
appointed to direct, a surveyor for building ships,
and so on; but to direct the efficient arming of
vessels when built, there is no one: thus, the
CIVIL MANAGEMENT OF THE NAVY. 25
ultimate object of a Navy is left, as it were, to
chance. This neglect has been the more prejudicial,
since, generally speaking, with the exception of
carronades, the guns established to be used on
board ship are no other than garrison guns; for
garrison service immensity of weight has been
judged to be but of little inconvenience, but on
board ship weight is a material consideration. As
yet there have been no experiments at all con-
clusive for ascertaining any of the most material
points respecting guns for sea warfare; for in-
stance, what is the length of interior required to
send a shot to that short distance usual in naval
combats; what thickness of metal to insure the
necessary strength; consequently, what of the
usual weight might be dispensed with. The great
diversity, too, in the gun-carriages in use, is of
itself full proof that much yet remains for expe-
riment to ascertain which of them is best, as
regards strength, facility in working, cheapness,
usefulness in bad weather as well as good, and ge-
neral efficiency. As to shot, many as have been
the experiments upon them, none of an exhaustive
nature have been attempted; so that it has not yet
been ascertained what varieties of missile are best
suited for the several purposes of battering, pene-
trating, lacerating, cutting, burning, &c.; still less
what form is best adapted for passing through the
air. A Director of Arming would, doubtless, under
the Admiralty, institute an exhaustive course of
experiments on these several points, and which
26 SUGGESTIONS FOR THE BETTER
would probably be conclusively conducted, if carried
on under his individual responsibility.
Nor is naval artillery the sole object to which a
Director of Arming might turn his attention with
profit to the service; the small weapons with which
a ship is furnished, whether fire-arms or cutting
weapons, are now only such as have been in use
for land warfare. It may be doubted whether the
musket carried by marines be well suited either
for offence or defence in the case of boarding;
whether the side-arms worn by officers, principally
as insignia of command, be of the best form for
their own protection. It is not now considered
whether rifle-guns might or might not be advan-
tageously used by marines stationed in the tops.
So, in a variety of minutiae, the weapons for use
when the crew might be engaged with the enemy,
man to man, are doubtless susceptible of great
improvement.
The Committee investigate and make the House
acquainted with the mode of transacting the busi-
ness of the Admiralty. They say it is distributed
amongst the several members of the Board, in such
manner as to render each Lord responsible for a
certain branch of the general business. Such re-
sponsibility, did it but exist, could hardly fail to
produce good order, and a due supervision of the
branches confided separately to each of their Lord-
ships individually, although they might not be
practically conversant with the business confided
to them.
CIVIL MANAGEMENT OF THE NAVY. 27
But, in point of fact, no such individual respon-
sibility does exist, for it never appears on record
when, where, or how, each Lord has interfered in-
dividually; whilst, on the contrary, every measure
of his, to give it effect, must in appearance be
sanctioned by the Board in its joint capacity: yet
it continually occurs that a Lord gives his orders
verbally to his subordinates, without such inter-
ference ever appearing in any recorded shape.
In the military branch of the Navy, respon-
sibility, individual and strict, pervades the whole
personnel. The admiral is individually responsible
for the due employment of the fleet under his com-
mand; the captain for that of his ship, conform-
ably to the orders he may have received; and so
on throughout the Navy. Nor is this a mere
nominal responsibility; admirals have been sub-
mitted to trial by courts martial, captains and in-
ferior officers frequently are so. Yet in the civil
branch of our Navy individual responsibility is alto-
gether absent; and that from the Junior Lords of
the Admiralty downwards, throughout the whole
Department. The First Lord himself, perhaps, may
be considered as responsible, for, being a minister
of the Crown, he might be impeached.
It is questionable whether the Admiralty itself
should take any active part in the details of busi-
ness, either operative, commercial, or accountant. It
is the province of that Board to order, and to exer-
cise a general supervision of the whole Department,
so as to inform themselves whether the effects re-
28 SUGGESTIONS FOR THE BETTER
quired by their orders have or have not been pro-
duced with the desired efficiency and with the best
economy; but, so long as their Lordships remain
implicated in details of business, they cannot be
expected to condemn operations that had been
instigated by one of their own body.
During the administration of Earl Spencer and
of the Earl of St. Vincent, gross mismanagement
of the civil branch of the Navy, particularly in the
Dockyards, was brought to light. This having
appeared to have been the natural consequence of
a defective system of management, their Lordships
had successively caused great progress to be made
in the arrangement of a new system, the same in
all respects under the two so different administra-
tions. It had been at first intended not to go higher
than the Dockyards, but, on further investigation,
it appeared that no effectual improvement could be
expected unless the Navy Board were also to be
remodelled, or, to say more correctly, entirely done
away with as a Board, so that a general outline of
a new constitution of the Navy Office was under
consideration when the Earl of St. Vincent's admi-
nistration terminated. That projected system was
grounded on the assumption that the whole of the
civil business of the Navy is no other than a com-
mercial and manufacturing concern; that what-
ever management is found to be the most success-
ful in private concerns, that same management
would be found equally advantageous in public
ones. It appeared that in all good private establish-
CIVIL MANAGEMENT OF THE NAVY. 29
ments the management of them was that of indivi-
duality, therefore individual responsibility and the
abolition of Boards were taken as the groundwork
of the new system. The whole civil business
of the Navy was designed to be divided under
three superior officers, a Purveyor-General, a Sur-
veyor-General, and an Accountant-General: the
first of these officers to manage all commercial
concerns; the second, to direct and control all
operative transactions; the third, to direct the
whole accountant business. The Accountant, par-
ticularly, was to abstract and bring to view the
actual cost, including all contingencies, of every
article purchased or produced for the creation and
maintenance of the matériel of the fleet. Each of
these officers to be individually responsible for the
business confided to him. A similar arrangement
seems to have been aimed at subsequently when the
Navy Board was abolished ; but, instead of three,
seven new Departments were instituted, and now
exist under the titles of Surveyor of the Navy,
Accountant-General, Storekeeper-General, Comp-
troller of Victualling and Transports, Director-
General of the Medical Department, Comptroller of
Steam Machinery and of the Packet Service, lastly,
the Director of Engineering and Architectural
Works. g
In each of those seven officers, knowledge appro-
priate to his particular department is essential, and
doubtless is adequately possessed by them; yet
much mischief has arisen from their independence
30 SUGGESTIONS FOR THE BETTER
one of the other, although the co-operation of these
operative officers would be essential to the well-
being of our Navy. The Comptroller of Steam
Machinery, for instance, stated to the Committee
that he had not been furnished with particulars
of the ships for which he was to provide the ma-
chinery. To remedy this evil the Committee recom-
mend that a cordial co-operation should for the
future be maintained between this Comptroller
and the Surveyor; but where such an indepen-
dency and coequality exist, this co-operation cannot
be depended on. Place the professional officers
all of them under one general superior, make
him responsible for the co-operation of the whole,
and he would be sure to elicit from each one all
such particulars as are jointly requisite to obtain
perfection in a steamer, as in every other item of
the matériel he would have to produce. This
officer would most appropriately be the Surveyor;
because, taking a ship as a whole, to be produced
armed, fitted, rigged, and stored for sea-service,
the vessel itself requires to be so contrived that,
besides being a good sea-boat, it should admit of
being provided with the most powerful armament,
the most efficient steam or other locomotive appa-
ratus, the most convenient fittings, the best con-
trived receptacles for stores, the most healthful
berths for officers and men, and all with the great-
est attainable degree of economy. At the same
time no such general direction should be consi-
dered as a depreciation of his, so to speak, sub-
CIVIL MANAGEMENT OF THE NAVY. 31
ordinates; each of these several officers has now
himself to submit to the Lord to whom his branch
is confided, as he then would, with all the profes-
sional officers, to the Surveyor-General. No dimi-
nution of present salaries should be contemplated;
for talented men in private concerns reap emolu-
ments far more considerable than ever are ob-
tained by professional skill in the civil branch of
the Navy.
It may be conceived that architectural and en-
gineering works should not be under a surveyor ;
but who so well as he could judge what re-
ceptacles were wanting or appropriate, as sub-
servient, directly or indirectly, to the construction,
repair, and outfit of a ship? So in another office,
that of Purveyor-General, the hire of transports
and of packets would come, as being a purely com-
mercial transaction ; the purchase of victualling
stores also, as that of stores of every other descrip-
tion, would, with equal propriety, be made by him,
furnished, as he would be, with subordinates com-
petent to judge of quality, in respect to the seve-
ral stores required for the service in its various
branches.
The Committee do not appear to have entered
into investigation on the important subject of the
Education of youth for the Naval Department; they
but barely notice a hope that is entertained in
regard to the plan now pursued for this purpose.
That plan is the drafting the best pupil of the year
from each of the Dockyard schools to the school
32 SUGGESTIONS FOR THE BETTER
at Portsmouth of mathematics and naval construc-
tion, so that by this means it is hoped a succession
of able officers may be raised for the Dockyards.
The Committee likewise say that a scientific edu-
cation is also afforded to twenty marine cadets.
The Committee make no observation as to the
expense at which this education is afforded; but
in the instance of the cadets it amounts yearly to
as much as 110l. 3s. for each cadet, and this
though they themselves contribute a further sum
towards the expenses of the college. As to the
eight pupils in the school of naval construction,
the cost to Government for their education amounts
to no less a sum than 100l. a year for each youth.
The number of these pupils is intended to be in-
creased to 24, at which it is to be limited.
According to the present plan, a lad must have
passed between three and four years as an ordinary
apprentice, before he becomes eligible for election
to the school at Portsmouth; a circumstance which
cannot but deter parents of every class in society
much above that of the operative, from entering
their children in a Dockyard. It is not now, as *
formerly, that by favour of an officer his appren-
tices might be excused labour at the dock-side,
and thus have time afforded them for the acquire-
ment of scientific knowledge, so that a liberal pre-
vious education is not now to be hoped for in the
lad of eighteen when taken to the school at Ports-
mouth; yet it is from this description of persons
it is expected to obtain officers for superior situa-
CIVIL MANAGEMENT OF THE NAVY. 33
tions. The abuses that formerly existed in regard
to the apprentices to officers were enormous; but
when Lord St. Vincent put an end to them, it was
at the same time his intention, as it had been
Lord Spencer's, to provide the means of affording
appropriate education in the Dockyards for the
personnel of the naval service. The projected semi-
naries were intended for the different descriptions
of youth rearing for that service. In each grand
division of pupils, the course of education was
designed to be appropriate to the different duties
in which they would be engaged in after life; and
the number reared was purposely to be greater
than that expected to be requisite for replacing
casualties and retirements. This excess of num-
ber was grounded on the certainty, that, even with
the utmost care, neither the whole of the pupils,
nor yet the greater proportion of them, would be
found possessed of that natural mould of mind
which leads to superiority of attainments, and that
of those who might be endowed with the requisites,
natural or acquired, all would not on becoming their
own masters devote their lives to naval service.
Government was not, however, to lavish public
money in gratuitous education of a superior kind;
on the contrary, it appeared that it could have
been afforded even without cost ; and if now it
could be effected, even at a moderate cost, it would
prove a valuable boon to the nation at large, whilst
at the same time, for filling vacancies, a choice
C
34 SUGGESTIONS FOR THE BETTER
would be afforded to Government amongst many
well instructed youth.
In taking an enlarged view of the education
proper for naval service, it is evident that neither
the artificer nor the seaman needs the scientific
knowledge essential to the officer; but every arti-
ficer and every sailor would be the more valuable,
had he been duly instructed during youth in the
several arts required in his calling, or on ship-
board. To this class competent instruction might
be given after the usual working hours of an ar-
senal, so that their labour during the day might,
if wisely directed, repay, during an apprenticeship,
all expenses incurred for their maintenance and
education : it is seen to do so habitually in the
handicraft businesses of private life. To a superior
class of youth, destined for warrant officers at sea,
and for clerks and inferior officers on shore, a
higher degree of education would be requisite: but
here also a portion of their time devoted to labour,
either in the various manufacturing operations
carried on in an arsenal, or in the simpler of the
clerk-like duties, would compensate for a consider-
able part of their cost for maintenance and instruc-
tion; for the small rest of the expense, parents,
doubtless, would willingly contribute, either as an
apprentice fee, or by a small annual sum for board.
For superior officers, whether for sea-service or in
our arsenals, a much more extensive education
should be afforded. Practical together with scien-
tific knowledge should form the essential part of
CIVIL MANAGEMENT OF THE NAVY. 35
it ; but considering that commissioned officers at
Sea, and superior officers on land, rank with and
are gentlemen, the education of a gentleman should
be afforded to this class, both literary and, to a
certain extent, even purely ornamental. To work
a little with their hands or pen would in their
case, too, be essential to their due instruction,
though the value of their labour could not be
counted on as remunerative of the expense they
would occasion. Of course it could not be ex-
pected, or tolerated, that Government should gra-
tuitously educate this class of youth; but looking
to private life, and to the great sums paid by
parents in preparing their children for service in
the corps of engineers, for example, for the East
India service also, and to the still more costly
charges for placing youth in the offices of civil
architects and engineers, no doubt can reasonably
be entertained but that parents would thankfully
accept, for their sons, nomination to a pupilage in
a naval arsenal, and consider it as a valuable pri-
vilege, although they were to pay the just cost of
the education it afforded.
Pecuniary regulations, as above, in regard to
the greater number of pupils, need form no bar
to the admission gratis of a few pupils in any of
the classes; for instance, sons of naval officers
killed in actual service; a boon which, in time of
war, would be no less highly prized in the service,
than it would be cheerfully accorded by the public.
Nor should those regulations prevent the annual
C 2
36 SUGGESTIONS FOR THE BETTER
elevation from an inferior class to a superior one,
of some one pupil, or even of a greater number,
where distinguished merit might indicate fitness
for such an elevation.
A naval seminary on an extensive scale might
be conducted at a much less rate of expense, com-
paratively, than a small one. The head master,
at a salary sufficient to engage the services of a
man of distinguished talents, information, and
power of communicating knowledge, might well
suffice for the superior tuition and direction of
some hundreds of youth, while his assistants need
only be such as would cheerfully engage themselves
at lower rates, as may be seen in private schools;
so that, according to this general outline of a naval
seminary, hundreds of youth might be educated at
an expense to the public little exceeding the 3,000l.
a year it now costs for the small number of 28
pupils at Portsmouth.
The Committee indirectly condemn the re-esta-
blishment of Deptford Dockyard as a building-yard,
and observe that the accounts kept in the different
Dockyards, and the abstracts from those accounts,
are not such as to exhibit the grounds on which
the need of an additional Dockyard, with its ad-
ditional staff of officers, is or is not required. The
Estimate for that staff of officers, together with
Some small contingent expenses, amounts to the
sum of 6,927. Unfortunately, an ill-considered
compliance with one-sided representations has too
often been yielded by Government to proposed
CIVIL MANAGEMENT OF THE NAVY. 37
measures. Had the Committee adverted to Pem-
broke Yard, with its staff of officers costing 8,825l.
a year, they would have found that this establish-
ment is as little needed as that at Deptford; nay,
that Pembroke Yard is absolutely mischievous,
considering the requirements of the Navy in times
of war; and the work executed there is at all times
necessarily more costly than at any other of the
Royal Arsenals. Pembroke Yard is mischievous,
because in time of war a sufficient body of com-
petent shipwrights has not been obtainable at those
Arsenals to which ships can resort when any way
disabled. At Portsmouth, for instance, during last
war, the establishment of shipwrights alone re-
mained for many years deficient to the amount of
above 200 men. On this account, therefore, it is
highly desirable that all artificers should be col-
lected together at ports to which a ship can come
for repair; so that on any emergency, such as after
an engagement, the men usually employed in build-
ing ships might be temporarily taken to expedite
again for service such vessels as might have been
disabled. The work executed at Pembroke is ne-
cessarily always more costly than at other yards;
because, no other work than building being there
performed, very many materials, timber particularly,
found unsuitable on conversion for a new ship, are
perfectly applicable to the repairs of an old one.
A good deal of timber of this description is now
sent to Devonport, at an extra cost for freightage;
much also, not worth that expense, is now sold as
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38 SUGGESTIONS FOR THE BETTER
offal at Pembroke, though a part of that timber also
would be found useful in a repairing yard. Besides
this extra cost of building at Pembroke, it appears,
by the Appendix to the Report, that timber mer-
chants cannot serve timber, either at Devonport or
Pembroke, but at a higher price than they can afford
to deliver it at the eastern yards or at Portsmouth.
Mr. Ward, in his evidence, states that some of the
best built ships have been constructed at Pembroke;
but as there can be nothing in the air of that place
more favourable than elsewhere for ship-building, the
superiority of those constructed there must have
arisen from the superiority of its officers. It would
rest with the authorities to place the officers of
that yard in any other Dockyard where deficiency
of supervision might have occasioned inferior work-
manship to have been overlooked. There is also a
farther reason why concentration of our Dockyards
is economical, namely, that the costly accommoda-
tions subservient to ship-building, together with
the stock of stores and of buildings to preserve
them, need be less in number and amount, if on one
spot, than if a sufficiency has to be provided at
many different places. The keeping up of the
Dockyards of Pembroke and Deptford may there-
fore be set down as both a wasteful and a prejudi-
cial annual expenditure of 15,752, in salaries;
besides the large sums that have been expended for
its protection in fortifications, and the annual cost to
no inconsiderable amount for their military garrison.
Instead, therefore, of expending in this year, for the
CIVIL MANAGEMENT OF THE NAVY. 39
enlargement of Pembroke Dockyard, the great sum
of 28,095l., as voted, it would be good policy to
abandon the place altogether. Could private persons
be found to purchase or rent the works, it would
be well for the public purse; but, if the situation be
too ill-chosen for private enterprise to adopt it, far
better to consider the money already expended on
it as so much thrown away, than to continue an
annual expenditure of an amount so large.
It may be generally affirmed, in regard to the
great number of architectural and engineering works,
that the proposers of them have looked only to local
advantages, instead of taking a comprehensive view
of accommodations already existing in our naval
arsenals, or of the comparative eligibility of their
different situations. Political considerations may,
it is true, in some cases, influence the construction
of new works, on which much stress is laid in the
discussions respecting those contemplated at Key-
ham ; otherwise it is by a reference to accounts
that the expediency of a proposed work can
alone be estimated, by a reference to accounts
made out to exhibit a money comparison of cost with
wse. For example, a dock for a ship of the line
may, with its appendages of drains, &c., be esti-
mated at the cost of 100,000l. ; five per cent on
that sum for interest of capital sunk, together with
a small sum for wear and tear, and for chance of
disuse, would be a small charge in the way of rent
for the use of such a dock, namely 5,000l. per annum,
c 4
40 SUGGESTIONS FOR THE BETTER
or above 16!. per working day. Would, then, the
use of a new dock be worth 5,000l. a year 2
The Committee censure much the practice in
regard to New Works, Vote No. 11., including also
Improvements and Repairs. The First Lord of the
Admiralty stated, as the principle on which he
wished to proceed, that the works, when com-
pleted, “should fulfil every possible exigency in the
most effective and economical manner.” It may be
considered as a possible contingence, that, in some
naval engagement, our whole fleet might be taken,
burnt, sunk, or destroyed ; and it really would
seem that in our naval arsenals provision is making
for such a catastrophe. It would be an ill com-
pliment to our gallant tars to admit the supposition;
yet on what other could be justified the enormous
augmentation that is making to our slips and
docks, as indeed to every other accommodation
subservient to the creation, outfit, and maintenance
of our Navy 2 There are now altogether not less
than 45 building slips, a number which, were full
use made of them, far exceeds what would be ne-
cessary for keeping up our Navy, even in time of
war. But full use never seems to be made of any
of the accommodations of this nature. It is not
making full use of a slip, to leave a ship upon it
untouched for many years. Even leaving upon it
a ship in frame for three or four years, to season
the timbers, is a wasteful employment of a costly
accommodation; since the wood might be equally
well exposed to the air in a seasoning-house, where
CIVIL MANAGEMENT OF THE NAVY. 41
the space it would occupy would be obtained at
a much inferior rent to that of a slip. The advan-
tages resulting from not putting a ship together
till after the shrinkage of the timber has taken place
is not the question here. It is not putting a slip
to its full use, when the number of men set to work
upon the ship on it is less than the number that
could be advantageously employed. It is not
putting a slip to its full use, when, even in the
longest days of summer, the hours of work are
limited from 6 to 6, when, by a judicious arrange-
ment of relays of artificers, double the number of
working hours might be obtained during a con-
siderable part of the year. Private manufacturers
are well aware of the loss they sustain by not put-
ting the accommodations procured by their sunk
capital to their fullest use.
The construction of new docks has of late occa-
sioned a needless expenditure of vast sums. This
species of accommodation is only requisite where
work has to be done to the outside of a vessel
below the water line; all repairs above that on the
outside, and all work in the interior, can as well,
and as economically, be carried on within a basin.
During last war the docks existing towards the
end of it already sufficed for the repairs required
to the bottoms of vessels. Since then three new
docks for first rates have been constructed at
Sheerness; yet it does not seem to have excited
attention, that a greater number of docks are now
thought to be required in time of peace than were
42 SUGGESTIONS FOR THE BETTER
found sufficient during war. There are, in the
several Dockyards, no less than twenty docks for
large ships, so that the construction of the three
additional docks now in progress at Portsmouth
seems a wasteful expenditure of the public money,
as is indeed the outlay for many other works in
progress or projected.
The Committee inquired whether the Naval and
Victualling Establishments abroad might not be
placed under one and the same officer. It is not
only abroad, it is at home too that many and great
advantages would result from placing each arsenal
under one and the same direction and control;
not only the naval and victualling establishments,
but all of the several establishments subservient to
the construction, equipment, and maintenance of
our Navy. By such a measure savings to some
extent might be made in the amount of salaries
consequent on a diminution in the number of
superior officers; but this source of economy is
as nothing, compared to that which would result
from a general cooperation of the several Depart-
ments of the dockyards, ordnance, victualling,
hospital, transport, and, to a certain extent, the
military branch whilst in port. Many are the
occasions when the personnel of one of these Depart-
ments might most advantageously be made to
assist another of them; but now those several De-
partments being under the management of as
many separate authorities, independent of each
other, and acting without one general superin-
CIVIL MANAGEMENT OF THE NAVY. 43
tending authority to direct the whole, neither men,
nor materials, nor accommodations of the one
branch can be made to render assistance to the
others. An example has already been given of
mischief arising from the separation of the ord-
nance from the naval management. In the same
Departments it has happened that when soil from
the Dockyard premises of Portsmouth had to be
delivered at the Ordnance wharf to make up
ground, this Department refused to lend boards for
wheeling barrows upon, because the soil was to be
delivered by Dockyard people; boards had therefore
to be sent from the Dockyard, not only incurring
expense for their conveyance, but risking pillage.
Pipes were provided in the Dockyard at that port
for supplying water to ships whilst lying in the
basin, or at the jettees, to save delay in watering;
but watering ships was in the Victualling Depart-
ment, for which reason, and for that alone, for
many years the Dockyard water and pipes were
never used for supplying ships; they continued to
take their store of it on board from the Victualling
premises, by the intervention of boats, as theretofore.
Indeed so rigidly has the separation of the Depart-
ments been observed, that when a design was
formed by which the Dockyard and the Ordnance
premises were so far proposed to be connected at
Portsmouth, as that vessels in the same basin at
the Hard might pass successively from the Ord-
nance, after having delivered ordnance stores, to
the Dockyard for what might be needful there,
44 SUGGESTIONS FOR THE BETTER
that design was rejected, because the wharves of
the two Departments were contiguous to the same
water, though the wharves themselves were com-
pletely separated and fenced off so as to prevent
all communication and interference of one with the
other Department.
The Committee investigated the practice in
private concerns, when steamers are in port, of
employing the engineers in repairs of the steam
apparatus; and although the first class of engineers
in the Navy could not be expected to work with
their hands, yet those of inferior classes might
certainly be so employed. But these engineers
being under military command, there is no one at
present to be looked to for giving orders, or judging
when it would be proper that they should work in
the Dockyard shops. Besides this particular class
of persons, there are others of a ship's crew who
might be usefully employed in the Dockyard, were
there any general superintendant of the port to
direct when such a salutary co-operation ought to
be required. In time of war, particularly, many
and great are the delays, inconveniences, and use-
less expenses consequent on the need, as it now is,
for vessels to be completely finished in one Depart-
ment before their wants can begin to be supplied
in another; whereas, were all the Departments at
each port to be placed under one chief control,
that superior, whilst careful that no one business
should impede another, would cause mutual assist-
CIVIL MANAGEMENT OF THE NAVY. 45
ance to be afforded at all times when co-operation
would tend to expedition or economy.
But the outlay of money is immense that might
be saved in buildings, were those of the several
Departments to be considered as interconvertible,
as well as the several Departments co-operative.
Many erections essential for specific purposes in
time of war become useless in time of peace, and
vice versä. Haslar Hospital, for example, is not of
greater extent than necessary, during war, for the
reception of the sick, and of the many casualties
that occur in action; but in times of peace, happily,
its spacious wards are for the most part untenanted.
Close by, at Forton, a great sum has been already
sunk for Marine Barracks; ground has just been
purchased for the extension of them, and 20,000l.
more is voted for the erection of buildings upon it.
Now the empty wards of Haslar Hospital would,
during peace, be suitable in all respects as barracks
for marines; this corps, in time of war being em-
ployed at sea, would consequently vacate the build-
ing before it could be wanted as an hospital. Such
an appropriation of the greater part of Haslar
Hospital need not interfere with the habitation of
the governor, or with his supervision of the part
reserved as an hospital; whilst that part taken as
barracks might be completely separated, and as
much under military control as those at Forton.
It is not conceivable that either the governor of
the hospital, or the commanding officer of marines,
46 SUGGESTIONS FOR THE BETTER
would be adverse to such an arrangement, since by
its means the public would be saved so many thou-
sand pounds.
Store-houses afford striking examples of saving
to be effected by the appropriation of them in war
time to war services, during peace to those of peace.
The store-houses in Clarence Yard are sufficiently
capacious to contain six months' provision for
20,000 men; they have now in them but three
months’ provision for 4,000 men, so that nine
tenths of this immense building are lying useless:
yet, instead of employing this empty store-house,
an enormous new one is said to be now building in
Portsmouth Yard, and in Deptford Yard a part of
the victualling store-house there is reconstructing.
In the Report it is observed that “public esta-
blishments are in many respects disadvantageously
circumstanced.” Investigation of these disadvan-
tages would prove that they arise solely from dif-
ference of management, in a public concern, from
that under which the affairs of private concerns
are carried on. Public concerns are managed by
Boards and Committees, by officers vested with
equal authority for the performance of different
parts of the same service, without co-operation one
with the other, though that co-operation be indis-
pensable for the due execution of the whole, as in
the case of suiting the steam machinery to the ship
it is to furnish with the means of locomotion. In
public establishments a plurality of officers are
often required to join their signatures in regard to
CIVIL MANAGEMENT OF THE NAVY. 47
matters with which some of those officers cannot be
acquainted. So in public establishments the ac-
counts kept are complicated, inefficient, often radi-
cally fallacious, and frequently falsified. In private
establishments the management is, on the contrary,
strictly individual, and the accounts kept in them
are such as to exhibit, in the simplest possible form,
all the out-goings and all the in-comings; so that,
inclusive of the stock in hand, the profit or the loss
at which the concern has been carried on may be
distinctly visible, as also on what operations in that
concern such profit or such loss has been the re-
sult. The whole business of a naval arsenal, in its
aggregate, is simply a manufacturing concern,
divisible into three distinct branches, as above in-
dicated, namely, the Purveying of materials and
of manufactured stores; 2ndly, the Operative, or
the manufacture of those materials; 3rdly, the
Accountant, or the noting all items of expenditure
and of returns. In a private concern the ultimate
object is profit as measured by money; but in a
naval arsenal there is this difference, that the ob-
ject is not a money profit, but the amount of effects
produced, as ultimately shown by the quantum of
matériel subservient to offensive force. In large
private concerns the three branches of purveyance,
manufacture, and accounts, are frequently con-
fided to three different persons; but, whether so or
not, individual responsibility is strictly observed
throughout the whole management; and so it
should be in public establishments, in order to do
48 SUGGESTIONS FOR THE BETTER
away the disadvantageous circumstances lamented
by the Committee.
Supposing such responsibility introduced in the
Naval Department, it is evident, that, as a Govern-
ment concern, it possesses advantages such as can-
not exist in private establishments for the pro-
curement of the matériel; whether manufactured or
as raw materials, the immense quantities required
by Government admits of their being furnished
at the lowest possible rate of profit, and what in
commercial concerns is of first-rate importance,
payment is sure. So in regard to the personnel
employed, the fluctuations of private adventure are
never apprehended; in the superior grades nothing
but misconduct occasions a dismissal; advance-
ment is, in a manner, certain, where aptitude is not
deficient, and Government employ has always been
held honourable; so that the fact is, that, in public
establishments, services always have been obtain-
able at a less rate of pay than in private concerns.
It has already been shown that the interference
of Lords of the Admiralty precludes the individual
responsibility of the directing officers in the purvey-
ing and manufacturing branches; so in the Dock-
yards individual responsibility does not, and cannot,
exist under the present system of management.
The Committee lay great stress upon the need of
vigilance in the Admiral or Captain-Superintend-
ant of a Dockyard, which they consider as the
most effectual mean of insuring good order and
economy. This officer is charged with a great
CIVIL MANAGEMENT OF THE NAVY. 49
variety of details, over and above the daily control
of all the business of a Dockyard: he can, and
does, interfere with the ordinary business of it;
sometimes doing so by written order, but often
also by merely verbal directions. The Committee
farther say, that “The correspondence of the
Superintendant affords the only channel through
which the Board of Admiralty are made acquainted
with the condition and daily transactions of the
Dockyard.” Thus in the same man are combined
the widely different duties of execution and of
reporting. The responsibility of this superior
officer is thus annihilated in respect to the most
important of his duties, that of reporting to the
Admiralty. It is annihilated, because no man can
be expected to report unfavourably of any transac-
tion which may have proceeded from his own
orders, or which at any rate he had had the power
to prevent or control.
Assimilating the whole of the Dockyard busi-
ness to a private manufacturing concern, the Ad-
miralty Board may be considered as the masters of
it, giving orders as to effects to be produced by
their servants. But, being masters of several such
establishments, they need at each of them an eye;
that eye at a Dockyard is the Superintendant.
But, that he may never be biassed in his judgment,
he should not habitually interfere in any opera-
tive business, or in the arrangement of any ac-
count; so far, however, he ought to represent the
master, as that, should he see immediate mischief
ID
50 SUGGESTIONS FOR THE BETTER
likely to occur from a mistaken judgment, or from
the mal-practice of an inferior, he, in such case,
should have the power of putting his veto on it; so,
also, he might have the power to give peremptory
orders for the execution of any work he might look
upon as not brooking a day's delay. But such his
veto, or such his interference, should be valid only
when given in writing; it should be immediately
recorded in the Dockyard books, and an account of
it should the same day be transmitted to the Admi-
ralty, accompanied or not, at his pleasure, with
any reasons he might think it proper to give
respecting his interference. Were such, and such
only, in addition to the duty of reporting, to be
the business of a Superintendant, he then would
truly be a valuable agent; he then would make the
Admiralty acquainted with the real “condition
and daily transactions of the Dockyard.”
An admiral or a captain in the Navy may be
considered as particularly appropriate as the eye
to look out for defects, deficiencies, misrule, mis-
chief, and waste of every kind, and in all quarters
under his inspection. A naval officer's experience
afloat would have rendered him competent to form
a general estimation of the fitness of works doing
to a ship in hand; whilst the habit of command on
board ship must qualify him to judge generally of
the due management of both officers and men on
shore. His very freedom from the habits of a Dock-
yard, and of the routine of its business, would
enable him to see with an unprejudiced eye both
CIVIL MANAGEMENT OF THE NAVY. 51
defects and advantages that might pass unnoticed
by men whose lives had been spent in the same
routine.
But, for managing the daily business of an ar-
senal, neither an admiral nor a captain can be sup-
posed to be acquainted with the technical details of
the different manufacturing operations carried on,
nor with the quantity of work to be reasonably
expected from so great a variety of operatives.
Even the circumstance of changing this officer
every three years takes him away when but just
learning the requisite minutiae of his business. A
Master Shipwright, on the contrary, seems, of all
persons in the service, the man best qualified to
superintend and direct the whole of the manufac-
tures of a Dockyard. The master shipwright has
served a regular apprenticeship in it; he has raised
himself, it may be presumed, by his own skill,
acquirements, and merit, successively through all
the different grades of office, to that superior one;
and, during the twenty or thirty years of such ser-
vice, he has enjoyed opportunities of making himself
acquainted with all the various works going on in
the arsenal. It may be said, and it is unfortu-
nately true, that he has had little opportunity of
witnessing the works or management in private
manufactories; but neither has the naval officer;
and it is to be lamented that education in a naval
arsenal has not hitherto afforded means of acquir.
ing that great variety of knowledge, scientific and
practical, seen usually to be possessed by the prin-
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52 SUGGESTIONS FOR THE BETTER
cipals of private establishments. Still, it is the
master shipwright who seems on the whole the
officer best qualified for the direction of all opera-
tive business. Were this superior officer, under
strict individual responsibility, to be made answer-
able for the due execution of all the works carried
on, he would soon distinguish the persons under
his authority who were best acquainted with each
subordinate branch of business, and would employ
them accordingly, especially where he felt a defi-
ciency of appropriate knowledge in himself.
It cannot be in a naval arsenal, as it is in a
private manufactory, that the principal can assign
to each of his subordinates that duty each of them
is most competent to well perform, or dismiss
altogether from his service any individual he may
look upon as unfit; but a near approach to this is
possible in a Dockyard, and if adopted would be
highly beneficial in its effects. This desirable
change in management might be effected by a
classification of officers as well as operatives, then
leaving the superior officer at liberty to assign, as
he might see meet, the various duties expected
from each class, in such manner to each individual
of it respectively, as each might appear best suited
to perform. Thus amongst the first class, his
assistants, he might consider one of these officers
to possess more tact than the others in detecting
the defects of vessels, and more ready in expedients
for repairing them; another assistant might be
peculiarly careful in exacting good workmanship
CIVIL MANAGEMENT OF THE NAVY. 53
in the construction of new ships; a third might
possess the peculiar qualifications requisite for the
economical conversion of timber; and, accordingly,
the superior would assign to the one the manage-
ment of repairs in general, to the second the build-
ing of ships, to the third conversion of timber. In
the class of masters, the superior would hardly
assign to the master carpenter the management of
the blacksmiths' shop; but, amongst masters of dif.
ferent works in wood, he might place at his dis-
Cretion one of them in the mast-house, another in
the carpenters' shop, according as their respective
qualifications might render them best suited; and
so on throughout all grades. As it now is, peculiar
fitness for any particular business is little looked
to. Appointments are made, when vacancies occur,
with the view only to reward and advance meri-
torious men from some inferior station. Some pa-
tronage in this, as in other cases, must be expected;
it is less, probably, in the civil service of the Navy
than in most other public establishments; but,
when the appointment of an officer has been the
effect of patronage, nothing seems so likely to
undo the mischievous effects of it, as the allowing a
superior officer to assign to an ill-qualified man
that particular duty which he may be least likely
to mar, even should he prove incompetent to the
direction of works requiring peculiar professional
skill.
Owing to patronage, the master attendant of a
Dockyard has been made superior in rank to the
D 3
54 SUGGESTIONS FOR THE BETTER
master shipwright; not the patronage of a particular
man, but of a class, that of masters in the navy.
The safety of many a vessel at sea has depended on
the master's peculiar skill in pilotage, and know-
ledge of coasts and harbours; yet the master is as
it were debarred from adequate promotion afloat,
so that it is natural that the commanders of vessels
and admirals of fleets should have sought to have
their masters rewarded by some distinguished em-
ployment on shore; and compensation for such
services has been accorded at the Admiralty by
the creation and continuance of the office of Master
Attendant, as the superior one in the Dockyard
establishments. In point of fact, however, not one
of the several duties assigned to that officer is other
than secondary to those of the master shipwright;
and even that professional duty of a master on
board ship, pilotage, is withdrawn from him when
he becomes master attendant, for special pilots are
appointed to navigate our vessels in our harbours
at home. Desirable as it is that meritorious masters
in the Navy should have reward to look up to, it
ought not to counteract good order in our arsenals.
A good service pension, for instance, would be both
an honourable and a valuable distinction for masters
in the navy. º
It would seem that Superintendant would be a
more appropriate title for the chief operative officer,
than that of Master Shipwright; if so, that of
Commissioner might be restored to the eye of the
Admiralty, commissioned as he would be, by that
CIVIL MANAGEMENT OF THE NAVY. 55
high authority, to pry into all Dockyard trans-
actions, and to acquaint their Lordships with what-
ever might to him appear amiss; but who would
also be charged with the more agreeable duty of
particularising, in his Reports, all instances of zeal,
good conduct, and economy.
With the introduction of individual responsi-
bility, a new feature would need to be established,
namely, that every responsible officer should, in
cases of illness, or absence on leave, be allowed to
nominate his substitute. In private manufactories
the master, on such occasions, delegates his authority
to any man that he considers most competent to
the charge; but as this could not be allowed of in a
public establishment, an officer might yet be per-
mitted to select, as his representative, that one of
the class of officers next below him whom he
might consider as the most able, and for whom
he would thus become responsible.
From the evidence of Mr. Ward it appears that
the quantity and quality of work done by artificers
have been considered as inferior to that which might
reasonably be expected, and that lately new rules
for promotion have been introduced, which, it is
hoped, will work well in diminishing this evil.
From the same evidence it appears that some years
ago a classification of workmen was introduced,
establishing three different rates of pay to the
shipwrights of each class respectively. This classi-
fication was put an end to by Lord Minto in 1841,
in consequence of complaints from the artificers.
D 4
56 SUGGESTIONS FOR THE BETTER
They said “that the rise to the first class was a
matter of caprice, and very arbitrarily regulated
by the authorities of the yard.” It has been found
that captains of ships can be depended on for
the rating of seamen; that complaints of partiality,
in regard to them, are but of rare occurrence; yet
a ship's crew, thus subjected to the arbitrary rating
of their captain, is free from that general notoriety
which cannot but have great influence in a Dock-
yard. How much more, then, does it seem that
the authorities of a Dockyard might be depended
on for impartiality in classing artificers, than the
captain of a ship in rating his men It may rea-
sonably be supposed that the complaints spoken of
were made either by the idle, or by a description
of artificers really to be pitied, the old and infirm,
who, however, ought not to be paid, as workmen,
beyond their worth from the public purse. Or,
taking the question in the other view, that the
officers really were partial and unjust ; that should
have been a reason for reprimanding, or even for
dismissing them, rather than for abandoning a whole-
some measure. Working by the piece has since been
tried, but again abandoned; because in this case
the men were found to waste materials. The new
rules for promotion that have been introduced take
away patronage from the Admiralty in a great
degree, by requiring that men should undergo
strict examinations, and obtain the recommend-
ations of their immediate officers before any pro-
motion can take place. This arrangement has, how-
CIVIL MANAGEMENT OF THE NAVY. 57
ever, the disadvantage of giving power to those
officers of recommending favourites, and of with-
holding approbation at their pleasure. This year a
new set of officers has been introduced, Measurers.
Their duty is to measure the work done under the
system of day-pay, and to mulct the indolent. The
success of this change seems doubtful, since the
measurer will find it difficult to ascertain whether
deficiency of work has arisen from real inefficiency
of the gang, or whether from idleness; for gangs,
according to present arrangements, must necessarily
include more or less of men past their prime, for
whose diminished strength he would naturally
make allowance; and in all cases he will be disposed
to leniency in the obnoxious task of recommending
mulcts. -
Amongst these several arrangements, that of
classification seems the fairest and the most effec-
tual, proportioning the amount of pay, in each
class, to the different degrees of skill, of strength,
and of industry evinced by the men; renewing also
the classification at fixed periods, so that a man
become infirm should no longer receive the pay of
a first-class man, and that another who had im-
proved in dexterity or industry might be elevated
to the class to which his new merit might entitle
him. At such periodical classifications former
errors in placing a man might be corrected, and
every individual would have continued motives for
exertion and good conduct, in the hope of elevation
in class and in rate of day-pay.
58 SUGGESTIONS FOR THE BETTER,
In private establishments it is usual to pay men
at different rates; and, in a Dockyard, no difficulty
has been found in doing so in the present steam
factory in Woolwich Yard, any more than there
was in the first three manufacturing establishments
in Portsmouth Yard. The present arrangement of
a uniform rate of day-pay to all shipwrights is the
more disastrous, as it never can be known what
portion of it is compensated for by an adequate
quantity of work. Superannuation is accorded to
a number of artificers, and consequently it is sup-
posed to be so to all who are past their work; but
the allowance for superannuation is so very much
below the amount of wages, that superannuation is
in most cases looked on as a hardship, even often
as an injustice, inflicted on the recipients. It
cannot be desired that the artificer who has wor-
thily spent his best years in the service should be
turned adrift in his old age, or be reduced to an
income too small to afford what to him are the
necessaries of life: but the habitual consequence of
this humane feeling is, that men are kept upon the
list of artificers long after they are able to perform
a fair day's work; they are put into the boat-house,
or to some other light employ, and perhaps, for
what would not be a half-day's work if duly
reckoned, they are paid the full wages of a first-rate
workman. Work by the piece might in many cases
be given to the infirm or to the old without injury
to the man or to the public purse. Where that
might not be practicable, it would be no injustice
CIVIL MANAGEMENT OF THE NAVY. 59
to place a man in the class receiving second-rate, or
even the lowest, pay. But, in doing so, the lowest
class must not, as it has been called, be considered
as a disrating class. No infamy should be attached
to it; since in a Dockyard, as in private life, the
man who cheerfully labours with his remaining
strength to earn the value of his work should be
honoured and respected for his efforts, though his
pecuniary gain be small.
The Committee discuss the appointment of a new
officer, the Timber Inspector, but without adverting
to former regulations for the management of the
important article of store timber. So long ago as
the naval administration of Earl Spencer, enormous
waste and abuse of this costly store was brought to
light, and in consequence entirely new regulations
in regard to it were devised; but a change of ad-
ministration took place before they could be carried
into execution. The Earl of St. Vincent, who suc-
ceeded at the head of the Admiralty, adopted those
regulations, and carried them into effect. They
were found to work well for the public, but greatly
to the annoyance of timber contractors, since they
were made by the new regulation to deliver their
goods in strict conformity to contracts, and many
were their attempts to evade compliance with them.
Their efforts for many years were of no avail; but
at a later time some alterations were made in the
regulations, doing away the strict responsibility
of the officer charged with the management of
timber; and frequent changes have since been made
60 SUGGESTIONS FOR THE BETTER
in the regulations, so that they have ceased to be
of their original efficacy, even as to the receipt of
timber. The regulations introduced in the year
1801 made it the sole business of the officer in-
trusted with the management of timber to direct
every operation relative to it, from its receipt to its
conversion, so that no interference of any other
person should diminish his individual responsibility
for the due execution of his trust; at the same time
efficient checks were provided against any col-
lusion with contractors, by requiring that, at the
receipt of timber, not only the store-keeper should
be present with the timber master, but also a clerk
from the Check Office, chosen on each occasion by
lot, so that it never should be previously known
who one of the persons would be whose connivance
would be necessary in any improper proceeding on
the receipt of this kind of store. The timber
master was then the person to be looked to for
security that timber was not defective on receipt,
that it subsequently received no injury from im-
proper storing, and, finally, that in conversion it
was turned to good account. Now that responsi-
bility is frittered amongst a store-keeper, a store
receiver, a timber inspector, and one or two assist-
ant timber converters, thus annihilating responsi-
bility, the timber converter can now allege, as his
excuse for cutting up thick stuff into planks, that the
piece was shaky; consequently he had made the best
of it by conversion of the sound part into plank.
Inquire of the store receiver why he had permitted
CIVIL MANAGEMENT OF THE NAVY. 61
thick stuff to be received as such when faulty; he
replies, the piece was perfect when received, it had
been damaged whilst in store : and as to the timber
inspector, he can attribute the fault to either store
receiver, store-keeper, or converter, as may best
serve the purpose of throwing the weight of blame
from off his own shoulders.
In regard to the whole of the present arrange-
ments relative to this store the Committee express
much doubt and dissatisfaction. The timber in-
spectors have been appointed without any commu-
nication with the Store-keeper-General, and he has
transmitted to the Board of Admiralty his objec-
tions to this plan, which he considers as open to
abuse. Insubordination, too, is introduced by the
powers given to this officer; he is authorised “to
correspond directly with the Board of Admiralty
whenever he sees occasion.” The master ship-
wright, by his instructions, is made responsible for
the due appropriation of timber and of all other
stores in his Department. The reason given in the
examinations for allowing the timber inspector to
correspond with the Board of Admiralty is, that a
master shipwright might, when a ship is building
on his own lines, require the timber for it to be
extravagantly converted : but such a dereliction
from his duty and from rectitude would be made
apparent, were the accounts kept so as to exhibit
what the conversion of timber really had been;
not, as at present, setting down the cost of timber
measurable in a ship at an average rate per foot as
62 SUGGESTIONS FOR THE BETTER
converted timber, instead of the actual cost of it as
it was in the rough, minus the value of inferior
conversions and offal. Possibly it might seem,
too, that a man capable of requiring unjustifiable
extravagance in respect to any particular vessel
could not be such as the Admiralty would either
appoint to, or continue in, the important office of
Master Shipwright.
Accounts There is an Accountant-General at
the Admiralty, but in the long list of officers in
the Dockyards and other naval establishments not
a single accountant. In the 20,000l. voted for
salaries in Portsmouth Dockyard, not a sixpence
of it is set down as for keeping accounts; nor does
it appear to whom this duty is in point of fact
confided. Is it the master shipwright 2 he acts
under the Surveyor of the Navy. The store-
keeper ? his duty, of course, must be subordinate
to the Store-keeper, not the Accountant, General.
One cannot look to any of the inferior officers of
a Dockyard as its accountant officer. Formerly
there was an officer under the title of Clerk of the
Check, who was supposed to manage all the
money matters of a Dockyard, and to register
accounts of every kind; imperfectly indeed the
business of this Department was always carried on,
but then there was at least the semblance of atten-
tion to accounts, now none. No accurate know-
ledge of the transactions of a Dockyard can be
obtained, either in regard to money or to money's
worth, but from accounts. No check can be de-
CIVIL MANAGEMENT OF THE NAVY. 63
vised so efficient against extravagance, embezzle-
ment, and waste, as that afforded by accounts; but,
to be that check, the accountant branch must
necessarily be entirely separated from, and inde-
pendent of, the operative Department. At pre-
sent the master shipwright, for example, signs to
certain accounts jointly with other officers. Ac-
counts, such as they are at present, are admitted
to be fallacious and inadequate. It is stated in
evidence that one source of that fallaciousness is,
the existing “disposition, on the part of everybody,
to make the accounts conform to the wishes of the
powers that be.” This is, indeed, one amongst
many reasons for separating entirely the accountant
branch from all other branches of service; and so
to regulate the mode of keeping accounts as that
it should be next to impossible, by connivance on
the spot, to concoct any statement of disbursement,
whether of money or stores, differing from fact.
The accounts of a Dockyard are no more difficult
to keep than those of any private establishment in
which an equal number of hands are employed;
and till this great improvement, the separation of
the accountant branch, is effected, no hope can be
entertained of any permanent good from change
of management. In accountant business, like all
other businesses, it is not number of officers that
gives security; but it is the giving specific duties
to such as are really needful, placed under the
supervision of one superior. An Accountant in
each establishment seems indispensable, if economy
64 SUGGESTIONS FOR THE BETTER
be looked to. As great sums are made up of small
ones, it should be the duty of an accountant in a
Dockyard to collect daily all items of expenditure;
and, so far from attempting to modify accounts on
the spot, those items should be sent up daily to the
superior Accountant Office in town, there to be
arranged under the several heads under which
expenditure is registered. It may be said that
this would be more costly in town than in a Dock-
yard, clerks in town being at their desks only from
the hours of ten till four, whilst those in a Dock-
yard attend from six to six, when daylight lasts so
long : but there is only custom against employing
clerks an equal number of hours at Somerset
House; nor would there be any want of candidates
for clerkships, were the hours of business prolonged,
or were in some other way the cost per hour of
duty to be made the same in town as in a Dock-
yard, by regulating the salaries of clerks accord-
ingly. It is ungracious to start an idea which
may bear hard upon a class of men so moderately
remunerated as are accountant clerks, yet com-
miseration for particular classes of persons should
not be allowed to influence general arrangements
conducive to good management.
Looking to the great variety of works carried on
in a Dockyard, it may at first sight seem impos-
sible to render daily accounts of work carried on,
or of materials expended; but analyse the business,
and the task will show itself to be an easy one.
Take the repairs of a ship, for example: the lead-
CIVIL MANAGEMENT OF THE NAVY. 65
ing man might daily note the number of men ac-
tually employed under him, next the species of
work in hand and the quantity of it executed, then
the kinds and quantities of materials consumed
during the day. It would be the business of the
accountant to collect these notes, and to transmit
them forthwith to the office in town. Printed
forms being prepared, according to which those
particulars would be inserted, the trouble of filling
in would be but small, and the manner simple,
and the uniformity of such forms would render
the posting from them easy. The business of post-
ing the accounts in town would in some cases
require to be done daily, in others at stated longer
periods, a week, or a month, or on the completion
of the work, as might be ; for the data being safe
in office, no collusion need be apprehended that
would give a fair semblance to what in fact might
be reprehensible.
But besides these particulars of disbursements,
there are many others attendant on the repairs
of a ship which never are brought to the account
of it, though really constituting as much a part
of the cost as the money paid in shipwrights' wages.
There is first the expense of, we will say, disman-
tling the ship. It consists of the wages and vic-
tuals for the ship's crew for as many days or
hours as they might be so employed ; next the
estimated cost of officers' attendance in bringing
her into the basin, and from thence into dock; with
the actual cost of men's time employed in this
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66 SUGGESTIONS FOR THE BETTER
business, together with the estimated wear and tear,
or actual expenditure of materials in shoring her,
cost of pumping the water run out of the dock,
rent of the dock during the time the ship might
occupy it. The Southampton Company find it
worth while to pay 50l. a day for the use of a dock
at Portsmouth when they need one ; but the real
cost per day, at 8 per cent on the capital, 100,000l.
sunk for it, is really no more than about thirteen
pounds a day, reckoning 300 working days in the
year. Then there is the value of the ship itself,
whilst lying idle, at say 4 per cent per annum upon
the capital expended in her construction. The
value of shipwright officers' time, too, should be
taken into account. These are all of them items
that can easily be ascertained and accounted for:
but there are others which are not so, such as the
waste and deterioration of stores consequent on
dismantling a ship; in time of war, also, that
which may be called demurrage, the non-use of the
ship, often of much political as well as of pecuniary
moment.
The bringing items, such as the above, to notice
in a money account could not but be productive
of considerable savings. The extravagance of dis-
mantling a ship would not be incurred but when
absolutely necessary; a ship would not be taken
into a dock, when her repairs could be effected in
the less costly accommodation of a basin ; nor
would she be kept in either of them for a longer
period than that absolutely requisite; for as many
CIVIL MANAGEMENT OF THE NAVY. 67
men would be put to work upon her as could be
employed without interference with each other:
and all these items would appear, as of course, in
well devised accounts.
So, in regard to the expenditure of stores, the
issue of them should never be made but by ac-
knowledgment of the recipient in the form of a
common receipt. It needs not that the store-keeper
should require a receipt for every half hundred of
tenpenny nails; but, as heretofore, he should be, as
it were, the wholesale dealer, issuing a wholesale
quantity at once to a cabin-keeper, as he is called,
or retailer. The cabin-keeper's receipt certifying
every issue exonerates the store-keeper; that of
the leading man, or foreman, as it might be, is the
voucher to the cabin-keeper. This mode of certi-
fying as to the issue of stores was introduced long
ago into some of the manufactories in Portsmouth
Dock-yard, was found easy in practice, and effi-
cient. The store-keeper's expenditures, when com-
pared in town with the data furnished as above
by the accountant of the Dockyard, would be un-
doubted checks one on the other.
It might easily be made apparent how, by such
a system, the accounts of a Dockyard could be
simplified, and materially curtailed, although afford-
ing unprecedented accuracy, and unexampled in-
formation of many kinds leading to good economy.
The business of the Accountant-General, to be
really useful, should not be confined to the mere
posting of accounts; he might have a far more
E 2
68 SUGGESTIONS FOR THE BETTER
extensive field of usefulness, that of comparing cost
with effect produced: such, for example, as the cost
of a ship of each class, for building, equipping, and
storing, reduced to an equivalent cost per month,
adding thereto the cost per month for wages and
victuals to her crew ; then taking the weight of
shot her artillery could throw per hour, this would
in each class exhibit the cost per hundred-weight
of shot she could discharge ; then comparing the
cost per hundred-weight of shot each class of ship
could throw, with the cost per hundred-weight to
produce the same effect in other classes, in the form
of a simple account, would really exhibit whether
a ship of the line be or be not the cheapest ship in
the service. So in respect to producing the same
effect in a Dockyard by different practices, it
would be shown in figures which of those several
practices was, in truth, the most economical; and
by bringing to view the comparative cost in differ-
ent Dockyards of producing any given effect, the
superior skill and management existing in any one
of them would be made apparent. Accounts of
this nature habitually kept, and abstracts of them
habitually laid before the Admiralty, would afford
to their Lordships data such as they never yet
have been possessed of, but from which they might
really see the degree of economy with which work
is carried on in the different arsenals under their
control; what it really costs to produce, in dif-
ferent ways, any desired naval force; and, further,
such comparisons would afford a great variety of
CIVIL MANAGEMENT OF THE NAVY. 69
other useful information, tending to the enforce-
ment of good economy throughout the civil service
of the Navy.
By the Report it appears to be believed that
accounts, as now kept, are so very accurate, that
the cost of a ship can be ascertained, from its first
construction, through the whole series of its sub-
sequent alterations and repairs; a very mistaken
notion, seeing that many items of expenses incurred
are altogether unnoticed, such as the rent of slips,
docks, and other accommodations appropriated to
their use during construction and repair, value of
officers' time, proportion of general expenses of the
yard, such as police, scavenging, insurance from
fire, &c., all of which would be taken into account
by the contract builder; and which in Pembroke
Yard raises the cost of building a ship from 25l. 5s.
per ton, as set down in accounts, to the greater sum
of 34/.4s. 6d.* Then there is the less apparent but
still not the less real expense, besides the above, of
interest on money sunk in fortifications for the pro-
tection of naval arsenals, as also the current ex-
pense of military for manning those works. The
materials charged to a ship are never set down at
their real cost ; they are charged, it is true, at the
contract price, but no rent for storehouse-room is
noticed, nor interest on the capital lying dead for
the years, perhaps, they may have remained in
store for seasoning, or what not. The labour, too,
* See Appendix, page 800.
E 3
70 SUGGESTIONS FOR THE BETTER
in building a ship, is very far from accurately set
down. A vessel not particularly cared for may have
no other men employed upon her but the regular
workmen of the yard, and there the cost of work-
manship may be charged with tolerable accuracy:
but in the case of a favoured ship, marines, as in
Pembroke Yard, may be employed upon her, at
what rate of pay does not transpire ; and convicts
would be put to assist in the works of a favoured
ship, convicts at the rate, as appears in the Blue
Book, of 18, a week; but as convicts can all work
as labourers and in lifting heavy weights, surely
their work is worth more than 26, a day, and
actually costs much more to Government, though
never appearing in Dockyard accounts. Some con-
victs, it is well known, are versed in different handi-
craft trades. Should convict carpenters or convict
blacksmiths have been employed for the works of
a ship, still, however great their exertions and good
their work, 2d. a day is all that is charged for them;
so that this alone would vitiate the accounts.
The Committee observe that “The large amount
of the Estimate for the purchase of Timber and
Stores, naturally suggests this head as one capable
of considerable reduction;” and that “the usual
consumption of timber has been nearly doubled of
late years, which has been attributed to the tem-
porary efforts for the creation of a Steam Navy; but,
as this measure has been in a great measure accom-
plished, the purchase of that material need not be
continued upon the large scale of the last few years;”
CIVIL MANAGEMENT OF THE NAVY. 71
and they add that, as they had “already recom-
mended a reduction in the number of workmen,
your Committee do not hesitate to recommend a
proportionate reduction of the materials on which
the workmen have been employed.” They then
state that the Estimate for Stores is to provide for
the consumption not only of the ensuing year, but
has reference to a more distant period of time, and
that the effects of an undue reduction are not per-
ceptible until some years after the time when the
insufficient estimate has been proposed; “that, in
regard to certain stores, an established quantity has
been fixed to be kept in readiness at the different
Dockyards;” and they give it as their opinion that
“an adherence to the establishment is the best safe-
guard against an injurious diminution or an ex-
cessive accumulation of stores.”
The new offices that have been created, with a
view to the better receipt and management of
stores, can only tend to diminish the small degree
of responsibility that theretofore existed. There are
now both a store receiver and a store-keeper; so
that in the case of inferiority being discovered in
any article of store, the store-keeper may allege
that that inferiority existed at its receipt, whilst
on the other hand the store receiver may affirm
that the article was good at the time of receipt,
but had suffered injury in the stores. It is not by
increasing the number of officers in this more than
in any other Department that security is obtained.
What is really essential in the receipt of all stores,
E 4
72 SUGGESTIONS FOR THE BETTER
as well as in that of timber, is, that it should be to
the satisfaction of three persons having separate
interests, namely, the officer best qualified to judge
of quality; secondly, the officer who is to have
charge of it whilst in store; thirdly, a person on
the part of the accountant officer, the latter person
being on each occasion fixed on by some uncertain
mode of nomination, and acting only as a witness.
By this uncertain mode of selection, no collusion
by pre-arrangement amongst the three could take
place as to the quantities received; and accounts, if
properly kept, would, on the appropriation of stores,
exhibit whether in use they had turned out to be
of the qualities contracted for. The store-keeper
having had his option at the time of receipt to
reject a store, or at least to record his objections
to it, would then become of course responsible that
no deperition of an article should take place whilst
it might remain in his keeping.
The Estimates for stores as at present framed,
are based on principles which lead to fallacy
throughout the whole arrangements respecting
them. Estimates are notes of the supplies that
will be required for future use, and therefore should
be framed on the quantity of those completed
articles, vessels of war, required for the service of
the ensuing year; but, instead of calculating what
stores would be needed for the maintenance of that
number of vessels, estimates are now formed on
the expenditure of the by-gone year or years.
Estimates, therefore, instead of beginning in the
CIVIL MANAGEMENT OF THE NAVY. 73
Dockyards, should have their origin at the Ad-
miralty. If so, that superior authority would have
to determine on the number of vessels of each class,
ships of the line and smaller ones, it would be
advisable to build in the ensuing year; how many
of each class of those already built should be kept
in commission; how many lying in ordinary. This
preliminary measure being decided, and the num-
bers determined on being furnished to the Surveyor-
General, it would then be his business to calculate
the quantities of each particular article of store
required for the construction or repair, outfit, and
maintenance of the vessels specified in the docu-
ment furnished by the Admiralty. For the con-
struction of new vessels, the calculation would be
easy; for the repairs and maintenance of existing
ones, there indeed averages would be the only data
to proceed upon; an average of the repairs that
had been given to ships of each class in commission
for some preceding years, say three or more; and
thus an Estimate might be formed on past expe-
rience, which could hardly fail of proving more
exact than when based as now on the chance ex-
penditure of the previous year. In the same way
the demands for repairing ships in ordinary would
be nearly ascertained. The Estimate thus made of
the requirements for the ensuing year, the next
operation would be to ascertain the state of the
stores of each kind remaining in the arsenals. If
those remains ea:ceeded the establishment the sur-
pluses would have to be deducted from the quantities
74 SUGGESTIONS FOR THE BETTER
necessary for the ensuing year; but should the
stock in hand be less than the establishment, that
deficiency would be to be added to the Estimate
for the ensuing year; so that thereby neither “in-
jurious diminution” nor “excessive accumulation
of stores,” should ever be found in our naval
arsenals.
In the Estimates presented to Parliament the
above particulars, abstracted under separate heads,
would afford to the House very useful information.
The intentions of the naval authorities, as to the
force they purposed to maintain, would at once be
seen. The cost of preparing and maintaining the
matériel of it would be exhibited by the value of
the stores required, joined to the expense of wages
to workmen, &c., in putting them to use; to which
also should be added the due proportion of con-
tingent expenses, as salaries to officers, rent of
accommodations, &c. The expense of the military
personnel of the Navy would appear in the separate
Estimates relative to the manning of the fleet.
By furnishing Estimates so grounded to the
Admiralty, but more in detail than would be re-
quired for Parliament, their Lordships would obtain
much useful information on points of great import-
ance, that is now only to be acquired by particular
inquiries attended often with much trouble to
themselves and their subordinates, and perhaps at
last failing to elucidate the particular object of
investigation.
An analysis of the present Establishment of
CIVIL MANAGEMENT OF THE NAVY. 75
Stores would probably show that it again needs
revision. It has been framed without sufficient
attention to two points materially influencing
quantities; 1st, length of time that must elapse be-
fore supplies can be obtained; 2dly, the perishable
nature, more or less, of each particular store. It
would become apparent that the establishment is
Sometimes insufficient, as in cases where the ob-
tainment of them is difficult, or where, as in respect
to timber, a great length of time must be employed
in seasoning them; in other instances, that the
establishment provides a superfluity, particularly
in regard to perishable stores, and of those which
on an emergency could easily be obtained at short
notice. The costliness of keeping a superfluity in
store arises from the loss of interest on the capital
expended on them lying dead for an unnecessary
length of time, from the rent of the storehouse-
room they occupy, and from the cost attendant on
the care of them; besides the loss from deterioration
of stores of a perishable nature.
The subject of Timber engaged much the atten-
tion of the Committee. They say, that “during the
last thirty years one firm (Messrs. Morrice) have
had a complete monopoly of the supply of British
oak for the Navy, and all attempts to obtain compe-
tition have signally failed;” and refer to evidence
given before them on the subject. By that of
Mr. Creuze, it appears that the supply to private
ship-builders, even, is confined to few persons; but
all the other evidence tends to prove that no really
76 SUGGESTIONS FOR THE BETTER
vigorous attempts to break through the monopoly
have hitherto been made. The Committee “are
inclined to think that by judicious arrangements,
and a firm determination on the part of the Ad-
miralty, the monopoly which has so long existed
might be broken through; they believe that, at a
time when there is no immediate pressure for ad-
ditional ships, a good opportunity is afforded for
putting an end to a system which is disadvan-
tageous to the public, and unfair to those merchants
whose competition it would be a wise policy to
encourage.” The evidence referred to shows that
tenders have actually been made for the supply of
timber at prices less than those of Messrs. Morrice,
but that those tenders were rejected because they
were for the supply of only Portsmouth and the
eastern Yards, and that none were made for timber
required at the other two Yards. On the part of
the merchants whose tenders were thus rejected
it is affirmed, that, had theirs been accepted,
other persons would have come forward for the
furnishing the timber required for the other ar-
senals. It however did happen, in consequence of
that tender, that Messrs. Morrice, for the time, did
lower their prices, so that they were less than those
at either the preceding or following year; thus
indicating, it would seem, their consciousness that
other merchants could afford to furnish the com-
modity at lower rates than those at which their
goods were received.
For some years past the Admiralty have ceased
CIVIL MANAGEMENT OF THE NAVY. 77
to take immediately from the Commission of Woods
and Forests the timber growing in the royal forests,
but purchase it at second-hand from those timber
merchants who are now the immediate customers
of the Woods and Forests. The reason for this
practice is alleged to be, that the cost price of
timber, when received directly from that Depart-
ment, exceeded the price for which the Admiralty
obtained similar stores by contract; a result which
cannot possibly have arisen otherwise than from
mismanagement in some quarter. Perhaps the
Commission of Woods and Forests may sell timber
at a cheaper rate to merchants than the price they
charged to the Admiralty; or, on the other hand,
charges in the Naval Department may have been
excessive in salaries to purveyors, and in expenses
for the felling and conveyance of the timber itself.
It happened, in Lord St. Vincent’s time, that a
greater sum was paid by contract for the convey-
ance alone of some beech timber from a royal forest
to Portsmouth Dockyard, than the then existing
contract price for the same description of store
delivered at the same Dockyard, that contract price
including the timber itself, the carriage of it, con-
tractor's profit, and every other expense. The
same sort of oversight may, at a later period, have
influenced the cost of timber from the royal forests
when taken straight from the Department of the
Woods and Forests, instead of by the intervention
of contractors. But however that may have been,
both the Report of the Committee, and the evi-
78 SUGGESTIONS FOR THE BETTER
dence they bring forward, exhibit the impolicy of
allowing, as now, timber that is growing and im-
proving in the royal forests to be cut, instead of
leaving it as a resource in the event of any emer-
gency, such as might occur in time of war, when a
supply elsewhere might not be to be obtained. At
the same time it is recommended that all trees that
are stag-headed, or otherwise betokening decay,
should forthwith be cut. There appear also, in the
Appendix, papers from Sir William Symonds, which
show that it would be good policy to plant a quan-
tity of land, now neglected, in the several forests;
and, amongst other evils, he deprecates the practice
of allowing hollies to grow up as food for deer, much
to the detriment of the growth of naval timber.
The Committee say that, in regard to oak timber,
“the system at present pursued by the Admiralty
appears to be injudicious and impolitic; that for
a great portion of the work for which oak is now
used, foreign woods are preferable in respect to size,
strength, and durability; while, in regard to eco-
nomy, they offer still greater advantages.” The
kinds of timber in question are the produce of
India, Guiana, Sardinia, and New Zealand, where
they are growing in great abundance. There at
present, however, exist impediments to the receipt
of a large supply of them. In some cases this arises
from the want of roads in the natural forests; in
others from want of means of transport. In the
Evidence to the Committee it is asserted, that were
CIVIL MANAGEMENT OF THE NAVY. 79
contracts, instead of being for a single year, ex-
tended to three years, merchants would find it
worth their while to make the necessary roads for
bringing the timber down to the water carriage.
The Committee conclude their observations on this
subject by saying, “When it is stated by the Store-
keeper-General that the supply of British oak, even
at a monopoly price, is failing, the public interest
renders it expedient to seek the best foreign sub-
stitutes.”
The kinds of foreign woods that are already
more or less in use by private ship-builders are:
Sabica, strong for beams; Cowdrie, from New Zea-
land, for topmasts; Orange-wood, Green-heart, and
Morrah, from British Guiana. These woods are
stated to be superior to British oak for plank and
thickstaff; and Green-heart possesses the valuable
property of never being attacked by sea-worms:
but these woods are not known in the Royal Dock-
yards, though mahogany has been partially intro-
duced in them. The mahogany used in this coun-
try for ship-building is that of the kind from Hon-
duras, which is greatly inferior in strength to
Spanish mahogany, a sort proved so excellent in
the instance of a Spanish ship which had been
built of that kind alone: but Spanish mahogany is
far too costly for ship-building purposes, being so
different in price from the Honduras, that Mr.
Creuze, in evidence, stated that he had seen a log
of Spanish mahogany which was worth 1,000l.,
80 SUGGESTIONS FOR THE BETTER
while a log of the Honduras sort of similar size
was worth no more than 10l.
The time of year at which timber is felled has
been thought to influence its durability, and the
superiority of winter to spring felled oak has long
been generally believed; yet, unfortunately, the
goodness of the timber itself has habitually been
sacrificed to the obtainment of the bark. About a
century ago it was imagined that were trees to be
left standing till autumn, after they had in spring
been stripped of their bark, their juices during the
summer would be assimilated, so that the wood
would be equal to winter-felled. Some trees were
accordingly so treated in the New Forest, and
ships for experiment were built of the wood; but,
on searching some years ago the Dockyard books,
no record could be found of the result of this
experiment. The present advanced state of vege-
table physiology indicates that little good seems
likely to be effected by this practice. The Com-
mittee endeavoured to obtain evidence as to the
comparative durability of winter and spring felled
oak. The Store-keeper-General, in his evidence,
says: “There is not the slightest evidence to show
that timber cut in the spring, and properly seasoned
before it is used, is less durable than winter-felled
timber. I do not say there is no difference, but
I know of no official evidence to justify a con-
clusion on the subject. Timber in the Adriatic
and Italy is always winter-felled.” The timber he
thus particularises as being winter-felled is else-
CIVIL MANAGEMENT OF THE NAVY. 81
where stated as being particularly good. The
Surveyor of the Navy in 1840 gave it as his
decided opinion that timber should be winter-felled.
Some other persons in evidence are of opinion, that,
although spring-felled timber requires a longer
time for seasoning than winter-felled, yet ulti-
mately there is no difference between them. This
is a question of so much importance to private
interests, as well as to the Royal Navy, that it
seems well worth ascertainment by a series of good
experiments; and it is one of those which could be
most satisfactorily made by Government, since they
only have such a command of forests as to assure
the cutting of trees at the respective seasons of
spring and winter, and that those same trees should
alone be employed in the ships destined for expe-
riment, particulars which Government only have
the means of effecting, as also that the result of
the experiment should be accurately observed, and
duly recorded. In the present contracts for timber
there is no restriction as to the time of year at
which it should be cut.
Due seasoning of timber has at all times been
regarded as a consideration of importance, and
the natural mode of leaving it in the sap gra-
dually to dry, has generally been esteemed the
best; but the great length of time required in this
way to effect the purpose renders it costly. Artifi-
cial means of seasoning, by a graduated heat and re-
gulated admission of air, was practised with perfect
success in a private manufactory above half a cen-
F
82 SUGGESTIONS FOR THE BETTER
wº
tury ago. The same mode was long since proposed
to be introduced into the Royal Dockyards, and it
has lately become the subject of a patent. In this
mode the juices elaborated in the tree during its
growth, but remaining in it unassimilated when
cut, are desiccated, but perhaps not chemically
altered: the effect they may have on the duration
of the timber has not yet been investigated. How-
ever, the efficacy of the many salts and other mat-
ters that, from the time of Hales, have been
recommended as preservatives of wood, seems to
depend on their chemical action on those juices; as
the benefit resulting from water seasoning, arises
from washing them out. The substance of the
wood, when of large scantling, cannot, however, be
penetrated otherwise than by exhaustion of the air
it contains. No experiments have yet been made
to ascertain the comparative efficiency of those
several modes, nor of those which chemical science
might further suggest.
The present prevailing opinion is, that ships
should be put in frame, and so left for some years
in a covered slip to season; nothing, however, ap-
pears as giving a preference to this mode of season-
ing over that which might be obtained in a suitable
seasoning-house, whilst the difference in expense is
great. The interest on the capital sunk for a
covered slip for a first-rate, at only 5 per cent, in-
cluding wear and tear, amounts to at least 1,500l.
a year, whilst the interest on a seasoning-house
would be but 150l., thus saving 1,350l. a year for
CIVIL MANAGEMENT OF THE NAVY. 83
every ship during the years of its seasoning. But
there is another mischief attendant on putting
together timber in an unseasoned state; the shrink-
age of it in drying disturbs the fastenings, and
occasions vacancies between the junctures of the
wood, thereby preventing that close contact of one
piece with the other so essential to durability.
The Committee strongly recommend that Pe-
nalties for non-performance of Contracts should be
strictly enforced. It would seem, indeed, that the
only case in which they ought to be remitted is the
breaking out of war, and this might be provided
for by a special clause in every contract. The
Committee further say that “there is also evidence
to show that the terms of the contracts and the
specifications might in some cases be reconsidered
with advantage to the public service.” In many
more cases than the Committee are aware of, the
private interest of the contractor leads him to cal-
culations whereby on the whole contract he derives
a profit which is unperceived by the public Board.
One frequent mode of effecting this is to set down
at a low price articles of which the tenderer knows
the number or quantity required will be but small;
but other articles in the contract of which great
numbers or quantities will be demanded, he sets
down in his tender at a price affording large profits;
thus, although the average of the prices tendered
for each item be low, he assures to himself large
profits on the contract as a whole. Where con-
tractors have hoped that future representations of
F 2
84 SUGGESTIONS FOR THE BETTER
their losses consequent by the terms of their contract
will procure for them an augmentation of price, it
has actually happened that they have tendered for
a work at a less price than the value of the mate-
rials alone they have had to furnish; and have
been afterwards allowed an increase of rate. It
appears in evidence, that, by not enforcing the de-
livery of timber at the time specified, the merchant
has profited very largely, by sending in the supply
at such times only as the cost of freight was in his
favour. In making contracts, too, investigation
would show that the times at which deliveries are
required are often so near the day of contract as to
preclude from tendering others than those persons
who happen to have in hand a large stock of the
commodity required. For instance, on the 6th of
January, this year, 1849, 50,000 gallons of rum,
50,000 tons of sugar, 50,000 of cocoa, and 20 tons
of tobacco, were advertised for, one half of each to
be delivered within three weeks after the day of
contract, the 18th of January, the whole quantities
three weeks afterwards. Supposing the service to
require this supply so immediately, that needed not
to prevent the making at the same time other con-
tracts for future quantities, so as to enable merchants
to provide these stores from the foreign markets
from which they must necessarily be obtained, if not
already in hand. Where articles are liable to fre-
quent and great changes in price, as corn, there,
indeed, it may often be good policy to name short
terms ; but that is not the case in regard to rum,
CIVIL MANAGEMENT OF THE NAVY. 85
or sugar, or tobacco. One of the mischiefs at-
tendant on separating the purveyance of stores into
different Departments is manifested in the contract
prices they respectively pay for goods. Coals, for
instance, were contracted for to be delivered at
Deptford Dockyard at the rate of 16s. 8d. per ton,
while for the Victualling service, delivered at pre-
cisely the same spot, the greater sum of 21s. 4d.
, was the contract price. So at Portsmouth, the
price per ton for the Dockyard was also 168. 3d.,
but for the Victualling service it was 228. 2d. per
ton, although it does not appear that any difference
in the quality of the article was stipulated for.
As usual, in regard to Manufacturing establish-
ments on Government account much examination
has been entered into, the result of which has been
that irregularities have appeared, consequent on the
uncertainty of who are the persons authorised to
demand particular works, but more especially from
the complicated, yet inefficient, mode of keeping
accounts; so that the general impression of the
Committee seems to have been, that it is more ad-
vantageous to procure a great variety of articles by
contract than to manufacture them. Yet, on con-
sideration of the subject, it becomes evident, that,
supposing the management in a naval arsenal to
be no more than moderately good, it must be
highly economical to manufacture in it by far the
greater number of articles required for the con-
struction and maintenance of our fleet. A private
manufacturer expects, and charges, directly or in-
F 3
86 SUGGESTIONS FOR THE BETTER
directly, a profit on all of his materials temporarily
employed or absolutely consumed, as also on all
wages paid, as may be seen in many accounts pub-
lished in the Appendix : he must, besides, have a
fair profit on the capital sunk in his machinery and
manufactory, and a full compensation for the chance
of its disuse; a chance not unfrequently realised,
whether from cessation of demand for his manu-
factured article, or from the competition of other
manufacturers. All of these profits are saved in a
Government manufactory. In the purchase of ma-
terials the advantage is on the side of Government,
as before noticed, their demands being large, their
payments sure; it can only, then, be from want of
good management if they buy not cheaper than the
private man. The security of Government service,
and the credit and respectability attached to it,
obtain for it the services of all grades of officers
and men at a less amount of remuneration than is
expected and received in private concerns. There
needs no better proof of this than a comparison of
the pecuniary circumstances of Dockyard officers
with those of private manufacturers. A Dockyard
officer, even of the highest grade, receives a salary
that barely suffices to support the appearances
which his station calls for; it barely affords edu-
cation to his children, and he leaves them without
provision, or but too happy if he can get them
placed in some petty Government. employ. The
profits of the private contractor enable him to enjoy
all the luxuries opulence can procure : he amasses a
CIVIL MANAGEMENT OF THE NAVY. 87
large fortune, and leaves his children wealthily pro-
vided for.
But, although in times of peace the savings by
manufacturing on Government account may be well
worth making, it is in times of war that they be-
come the greatest. At such times sudden demands
are frequent for unusually great quantities of par-
ticular stores; on such occasions private manu-
facturers ask for, and obtain, prices which far exceed
those yielding a fair profit; and this especially for
articles where private manufacturers can combine
to take advantage of the urgent needs of Govern-
ment.
There are, besides, many stores, the goodness of
which depends on certain processes in their fabrica-
tion which cannot be ascertained but during the
manufacture. Sail-cloth, amongst others, is a no-
torious instance of the arts used in private factories
to save expense in making it, though to the known
deterioration of the fabric in point of durability.
Sail-cloth is here taken as the example, because the
mischiefs in question appear in the Appendix to
the Committee's Report.
That manufactories, when carried on on Govern-
ment account, may be managed so as to produce
great Savings to the public, was long ago exem-
plified in the metal and wood mills in Portsmouth
Dockyard; as also that the accounts of such an
establishment may be kept in a Dockyard, with
all the accuracy and all the minuteness customary
in private manufactories. This was officially proved
F 4
88 SUGGESTIONS FOR THE BETTER
when private manufacturers used unprecedented
means to discredit the metal mills, amongst others
calling for the accounts relating to it: those ac-
counts were furnished in detail to the private ma-
nufacturers; but, interested as these gentlemen
were, they saw no ground for calling in question
either the accuracy or the efficiency of the accounts
kept in that establishment. It is not irrelevant to
say that the minuteness and the exactness of those
accounts had been attained without the aid of a
single clerk attached to the mills, and with only
the small occasional assistance of a clerk in town to
recalculate wages, and to ascertain the conformity
of the accounts to general regulations.
The Steam Navy is animadverted on by the
Committee, as having in various ways been the
cause of great expense; and, necessarily, its intro-
duction could not but have occasioned a heavy
outlay; but the great advantages obtained by the
adoption of this artificial mean of locomotion
would fully justify the disbursement of large sums
for its procurement. It seems, however, that the
success of vessels in the Royal Steam Navy has not
equalled that obtained in the mercantile steamers,
either in respect to efficiency or economy.
It is impossible to ascertain the amount of ex-
penditure that has been incurred in bringing the
mercantile steam navy to its present degree of
perfection. The abortive experiments of private
engineers, or private shipbuilders, rarely meet the
public eye; so that the cost of preliminary efforts
CIVIL MANAGEMENT OF THE NAVY. 89
amongst private men remain unknown and unap-
preciated, while all the failures in the Royal Steam
Navy have been brought to public notice. One
great difference there has been, however, between
public experimental steamers, as of every other
description of vessel, and those of private persons,
namely, that Government have made all their expe-
riments on a large scale, while the private man has
been content to make his first essays in a petty
way. In the year 1830, indeed, Government had
determined on the institution of a course of expe-
riments to ascertain many important points in
ship-building, beginning with small models, and so
proceeding, step by step, through boats and Small
sailing vessels, before money should be spent in
trials on large ones. This extended series of ex-
periments was abandoned, because no young man
to make them could be spared from any of the
Dockyards. Since that time an eminent private
engineer (Mr. Scott Russel) has not disdained to
begin very similar experiments in a wooden trough
of water to represent the ocean; he has proceeded
gradually to those on a larger scale, and has pro-
duced steamers said to outstrip the fleetest of other
builds by a fourth, and even a third. But Govern-
ment have made their experiments of late years on
ships of the line for sailing vessels, and on steamers
far exceeding in bulk any of those in private trade.
In an innovation so new as that of steam naviga-
tion, a great variety of points have to be ascertained,
such as no previous experience could solve; there
90 SUGGESTIONS FOR THE BETTER
is one of these that has lately been investigated
with great ability and precision, that of the dif-
ferent qualities of coal, and their different degrees
of appropriateness for steam-ships. So also in re-
gard to different forms of screw propellers, several
varieties have been tried in the only way in which
fair experiment of them can be made, that is, by
placing those varieties, one after the other, to
propel the same vessel, in the same place, by the
same steam-engine.
The vast sum that has been expended in the
Construction of Iron Wessels, now to be laid aside,
was disbursed in the first instance without advert-
ing to the power of that material of resisting
shot; although in the year 1810, when the intro-
duction of iron in ship-building for naval purposes
was first proposed, the influence which shot might
have upon it was particularly noticed as a ne-
cessary subject of experiment. At the present
time the abandonment of iron vessels has been de-
termined upon, it is said, without adequate experi-
ment; for the only ones that have really been made
are by some affirmed to have been improperly con-
ducted, or at least not to have been pursued to a
requisite extent. On the contrary, in favour of iron
vessels, the Committee had before them evidence
of the commanders of iron vessels that had been in
actual warfare, which went to prove the sufficiency
of iron for vessels of war. It appears that the
Committee were much divided as to the opinion
to be given by them on this subject; so that on
CIVIL MANAGEMENT OF THE NAVY. 91
reading the draft of their Report, it was proposed
to insert in the Report that, “The evidence of the
only officers examined by your Committee, who
have commanded iron steam-vessels under fire, is
unanimous in favour of their fitness for purposes
of war; and the result of the experience of these
officers was communicated to the late Board of
Admiralty, previously to iron steam-vessels having
been ordered for purposes of war. On the other
hand, an experiment at Portsmouth was unfavour-
able. This experiment, however, appears to have
been entirely insufficient, on account of the weak
and decayed state of the hull on which it was
tried,” &c. This amendment was negatived; but
the numbers voting for or against it are not speci-
fied in the Report.
The many cases in which the names of members
of the Committee are inserted as voting either for
or against the question proposed is, in fact, a near
approach to individual responsibility; thus uniting
the advantages of a plurality of persons for eliciting
facts, with that of individual responsibility as to
the opinion to be given in consequence of evidence
obtained. It seems only to be wished that in much
more numerous cases such individual opinions had
been recorded. -
There remain many subjects relative to steam-
vessels that demand experiments of an exhaustive
nature, amongst the most important of which is
the Power of the steam-engine required for the
propulsion of a vessel of each of the several classes.
92 SUGGESTIONS FOR THE BETTER
The Committee have elicited the fact, that this im-
portant point is now quite unknown, and that in
consequence heavy expenditures have been incurred
by the use of larger steaming apparatus than ne-
cessary, and by the consequent change of engines,
and alterations dependent on it, yet that the degree
of power really necessary remains still unascer-
tained. In this case, as with the screw, the only
sure mode of ascertainment would be by using one
and the same vessel for all the experiments made;
employing first the steam-engine of the smallest
size that would propel the vessel at a slow rate,
going on to engines larger and larger, noting pre-
cisely the speed obtained in each experiment, with
the quantity of the coal consumed. The experiment
would be costly, it is true; but not so costly as
what has actually taken place, in ordering, for in-
stance, a steam-engine of the price of 70,000l., but
found in use too large, and therefore laid aside.
Experiments on small vessels would indicate very
nearly the greater amount of power necessary for
larger ones; and the rate of speed, compared with
the consumption of coals, would enable the Admi-
ralty to judge on safe grounds, in what cases it
would be proper to obtain a small addition of
speed, at a great extra expense in the steam-engine
itself, and with a constant extra expenditure of
coals.
The sum of upwards of two millions having been
voted for the “purchase and repair of steam ma-
chinery since the year 1840,” led the Committee to
CIVIL MANAGEMENT OF THE NAVY. 93
obtain a statement showing what part of the sum
so voted had been applied to other purposes. Of
that sum, 4,6111. were, at two different periods,
accounted for as unappropriated balance, and de-
clared available as ways and means; but that the
immense sum of 319,118l. had been “appropriated
to meet the excesses under other heads of expen-
diture under Vote No. 10.” being that of naval
stores. This affords another instance of the falla-
ciousness of the statements and estimates as laid
before Parliament, purporting to be for the infor-
mation of the House. -
The Report states incidentally, as it were, that,
in the year 1833, 89 marines stationed at Pem-
broke Dockyard had been employed in it during
their vacant hours. The employment of marines
at such times in the business of a naval arsenal,
might be made greatly conducive to their useful-
ness on board ship ; they might thus acquire more
or less of experience and skill in the several
branches of business subservient to the repairs of
vessels, so that their services afloat would become
valuable as artizans when the carpenter or boat-
swain might be in need of extra assistance, as after
a storm, or an engagement with an enemy. Be-
sides this consideration, the employment of marines
in useful works during their spare time could not
but be conducive to good order and morality; the
vicious practices of the soldier too often originating
in the want of occupation on the days when he is
not on full duty. Nor could the employment of
94 SUGGESTIONS FOR THE BETTER
marines habitually, when not on duty, be esteemed
a hardship, were they, as would be but reasonable,
allowed on such occasions some small addition to
their pay. Privates, both in the militia and in
regular infantry corps, have often been allowed,
when off duty, to labour on their own account for
private persons; those who have profited of this
indulgence have usually been found to be the best
men in a military point of view, no less than in
morality. A small deduction from the pay of
men so favoured has often been made to the profit
of some officer. This would not be were the men to
be employed in public works; on the contrary,
Government would obtain their labour at a cheap
rate, though some pecuniary addition were made
to their regular pay.
Mr. Ward, in evidence to the Committee, spoke
of the Demoralisation of free workmen consequent
on the employment of convicts amongst them.
Their introduction to the Dockyards has had an-
other mischievous effect on the minds of free work-
men: many of these complain that their wages
cannot suffice to keep them and their families in
such ease and comfort as that in which the convict
is maintained, he having all his wants, in sickness no
less than health, liberally supplied by Government;
whilst the free workmen has to provide for the wants
of all dependent on him, no less than for his own,
and this when laid upon a bed of sickness as at all
other times. A few convict artificers were, during
last war, employed with good effect, some in Ports-
CIVIL MANAGEMENT OF THE NAVY. 95
mouth, some in Sheerness, Dockyards; but they
were kept separate from the free workmen, on
works quite distinct. They were treated kindly,
and very small gratuities were allowed them, so
that they were induced to work well and assidu-
ously. They were, it is true, a chosen set; yet it
was satisfactory to witness their good behaviour,
and to have reason to believe that, after their terms
of punishment had expired, the habits they had
acquired of good order and industry had wrought
in them a permanent reform. Wherever convicts
may be employed on a public work, it seems essen-
tial that they should be entirely apart from other
workmen, and that the convict should never be
exposed in fetters to the public gaze, since this has
been found to harden criminals, and to have been
a powerful obstacle to reformation.
The Committee express doubts of the expediency
altogether of Training to Arms the operatives of a
Dockyard. The measure does, indeed, seem fraught
with mischief, by turning the minds of officers and
men from the proper duties of their station, to
those of a military nature. In time of war, too,
however well trained as a soldier the shipwright
might become, his services are then of far higher
value in the repairing and keeping up our stock of
vessels, than could possibly be expected from him
as a mere soldier. Even were Dockyard men to be
trained to arms, their habits in fitting artillery on
board ship indicate that great guns, not the musket,
is the arm for which they are predisposed.
96 SUGGESTIONS FOR THE BETTER
It is stated in the Report that “The Commission
to inquire into the state of the National Defences
recommended that several ships of the line should
be adapted to the protection of the harbours in
the Channel, by being fitted with steam machinery
and screw propellers;” and that in consequence of
this recommendation, four 74-gun ships and four
42-gun frigates were ordered to be so prepared. It
appears that the expense incurred on this account
for one only of these ships, the Blenheim, amounted
to above 68,000l., and that after an expense of
25,5271. had been incurred for partly preparing
the four frigates, farther proceedings on them were
stopped; it is further stated that these vessels
cannot be restored as sailing vessels without an
additional expenditure of five or six thousand
pounds for each ship.
That floating batteries are the cheapest batteries
for harbour defence, a comparison of their neces.
sary cost and maintenance with that of batteries
on land would prove. Floating batteries are the
most effectual also for this service, since a floating
force can move to any point where the enemy
might menace an attack; the fixed battery, on the
contrary, can defend but that limited spot over
which the range of its guns extends. There is
not, however, a single reason why floating batteries
should be formed or fitted exclusively for coast
defence. Every vessel in the Navy should, for
every warlike purpose, be furnished with the
greatest amount of missile force she is capable of
CIVIL MANAGEMENT OF THE NAVY. 97
carrying, as also with the best means of locomotion
that considerations of cost would justify: this being
so, every vessel thus prepared is equally well suited
for encounters with an enemy in the open sea, or
for coast defence. It might, perhaps, be suggested,
that vessels employed only for coast defence would
not have to encounter rough weather; but winds
as boisterous ſand waves as overwhelming are
encountered in the Channel as elsewhere. Every
sea-going vessel of war is therefore, in point of
fact, a battery for coast defence; and at all times
when the naval government may deem it expe-
dient to keep our ships near home for its defence,
we already possess such batteries of immense force
without need of alteration.
For the defence of our great harbours, Chatham,
Sheerness, Portsmouth, Plymouth, nay the Thames
itself, large ships may possibly be the most appro-
priate; but, for the defence of our long line of
coast, it has been lost sight of that it is for the
greater part so shallow, that neither can our own
ships of deep draught lie to defend it, nor can other
than shallow vessels approach the land, or even
any of our secondary harbours. It is, therefore,
small vessels of war, drawing little water, that
would be our best and cheapest coast defence,
provided they were armed efficiently. It was
proved during Sir Sydney Smith's glorious defence
of Acre, that petty barks of five or six tons only
could bear, and make good use of, long 24-
G
98 SUGGESTIONS FOR THE BETTER
pounders, 68-pounder carronades, and a 42-pound
howitzer.
Above six millions of money are lying dead in
our harbours, in the form of Wessels in Ordinary.
A private ship-owner possessed of such a stock would
turn it to some profitable use; and so might Govern-
ment find employment for their vessels whilst not
required for purposes of war. There is the packet
service generally, the conveyance of troops and
stores from place to place, as also of civil servants
of the public, likewise the conveyance of convicts,
and some other petty services in different depart-
ments, besides custom-house vessels, in all of which
services vessels now lying in ordinary might be
employed. For such of these services as appear in
the Navy Estimates as to be executed in hired
vessels, the total amount for freight is no less than
805,476l. No doubt it is far from the whole of
this sum that goes to the hire of the vessel itself,
since wages and victuals of the crews are included
in that payment; but there are no accounts from
which information can be derived of the proportion
expended for the crews, what for the hire of the
vessel, or how much as profit to the ship-owner.
On the other hand, there is no notice taken of the
disbursements for keeping ships in ordinary, nor
yet of the far greater cost of repairs, although they
are frequently to a considerable amount. The
Appendix shows several cases where the estimate is
from ten to twenty thousand pounds for the repair
of a single ship; indeed, the wear and tear of a ship
CIVIL MANAGEMENT OF THE NAVY. 9
at sea would probably amount to little more than
what is now expended on her whilst lying in har-
bour till she rots and is broken up. In making
use of Government vessels for the above purposes,
a man-of-war's complement would be quite useless;
no more men would be needed than enough to
work the vessel, and the officers would of course,
both in number and in rank, be proportioned to the
crew; the expenses of such employment would there-
fore consist of wages and victuals to the limited crew,
and of the wear and tear of the vessel itself. Against
this would be to be set the average current cost of
keeping a ship in ordinary, the average expenditure
for repairs, and the half-pay of as many officers as
might be required for vessels so employed. A
measure of this nature might be beneficially ex-
tended to the bringing home various stores, espe-
cially for naval purposes; as, for instance, the
timber of New Zealand, for which at present no
freight can be obtained. So far from the tendency
of such a measure to deteriorate our warlike force,
it would, on the contrary, increase our capabilities
on the breaking out of war. In all parts of fre-
quented seas, vessels would already be on the spot,
having on board a well-disciplined skeleton crew,
easily in all parts made up to the war complement.
Young officers, instead of languishing inactively on
shore, would be acquiring practical knowledge of
navigation and of distant seas when sent from
home; and, if employed on our own or neighbour-
ing waters, would acquire most useful knowledge
G 2
100 SUGGESTIONS FOR THE BETTER
of coasts, and tides and currents, so essential to
the protection of our home, and to the annoyance
of the enemy, were the neighbouring states to
become, unfortunately, hostile. A bar to such
employment of our ships is, that it has been
considered as derogatory to a vessel of war
that it should be employed for the transport of
other stores than jewels and the precious metals;
but this is a prejudice which, it is hoped, will be
dissipated at this more enlightened day, and that
the Board of Admiralty will admit of distinguished
merit acquired in the transport of stores or men,
as no less a step towards promotion, than where
service has been confined to ships commissioned
solely with a view to exercise.
On a retrospection of the whole Report, it ap-
pears that the civil branch of naval affairs is a
business altogether commercial, manufacturing, and
accountant ; that it has been carried on without
observance of those rules of economy the neglect
of which, in any private concern, manufacturing
or commercial, would be ruinous; that co-operation
of the principal Departments, by the combined
operation of which the naval force is created and
maintained, has been wholly disregarded; that works
of very great expense are habitually undertaken
without any distinct estimation of the benefit ex-
pected from them, or calculation of the real expense
to be incurred for their procurement; that no ade-
quate checks are provided against mismanagement;
CIVIL MANAGEMENT OF THE NAVY. 101
and that accounts are not so kept as to exhibit the
real expenditure in naval arsenals for the pro-
duction of any given effect, or to bring to notice
either extravagance, waste, or abuse, on the one
hand, or, on the other, to exhibit, as to the per-
sonnel of the civil service of the Navy, instances of
either distinguished talent, probity, zeal, or good
economy.

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£ & “ Lignosis Londinensis 18
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& 4 Self-Instruction - - 17
gº tº Trees and Shrubs - - 17
a g Gardening - sº - 17
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Rivers's Rose Amateur's Guide - 25
Rogers's Vegetable Cultivator - 26
Schleiden's Botany, by Lankester 2
Chromology.
Allen On Prerogative - -
Blair's Chronological Tables
Bunsen's Ancient Egypt -
Nicolas's Chronology of History
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Humphreys's Black Prince - - 13
James's Foreign Statesmen - - 16
Kindersley's De Bayard se - 14
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Maunder's Biographical Treasury - 20
Roscoe's British Lawyers – - 16
Russell’s Bedford Correspondence 4
Shelley's Literary Men of Italy, &c. 16
6 & French Writers - - 16
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&g Life of Wesley - - 29
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Stephen's Ecclesiastical Biography
Taylor's Loyola - - - - -
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Waterton's Autobiography & Essays 31
29
30
Books of General Utility.
Acton's Cookery - - - - 3
Black's Treatise on Brewing - - 4
Cabinet Lawyer - - " - - 5
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Hints on Etiquette * sº. – l 1
Hudson's Executor's Guide - - 12
“ On Making Wills - - 12
Commerce & Mercantile Affairs.
Banfield and Weld’s Statistics - 3
Gilbart's Treatise on Banking - 9
Gray's Tables of Life Contingencies 10
Lorimer's Letters to a Young
aster Mariner - - - *
M“Culloch's Commerce & Navigation 18
Reader’s Time Tables - - - 24
Steel's Shipmaster's Assistant - 29
Thomson's Interest Tables - - 30
Walford's Customs' Laws - - 31
Geography and Atlases.
Butler's Geography and Atlases -
De Strzelecki’s New South Wales -
Erman's Travels through Siberia -
Forster's Geography of Arabia -
Hall’s Large Library Atlas - - 1
“ Railway Map of England - 10
Johnston’s General Gazetteer - 14
MºCulloch's Geographical Dictionary 18
Mitchell's Australian Expedition - 21
Murray's Encyclop. of Geography - 22
5
7
8
9
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History and Criticism.
Pages.
of - ag 16
Tables - 4
Thucydides ;
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of 2- 16
Paul 6
France - - 16
of Roman Empire 16
Republics - 16
Dunham's and Portugal - 16
&g Ages - - 16
«g mpire - - 16
& & Sweden, &c. 16
& 4 - - - 16
Dunlop's of Fiction - - 8
Eastlake’s of Oil Painting 8
Eccleston’s Antiquities - 8
F tates - * 16
9
19
19
19
10
16
10
1 1
11
13
14
16 °
14
18
18
Mackintosh’s 18
& º 16
18
- 20
º - 20
- - 20
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History 22
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of History - 16
History - 28
Reformation 24
Dictionary 25
- - 25
Rogers’s
Review - - * - - 25
Rome, History of - - - - 16
Russell's Bedford Correspondence 4
Scott's History of Scotland - 16
Smith's St. Paul - - - - 28
“. (S.) Lects, on Moral Philo-
sophy - - - - - 28
Soames' Latin Church - - *
Southey's The Doctor, &c., - e
Stebbing's History of the Church - 16
4 & History of Reformation 16
Stephen's Church of Scotland - 29
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Townsend's State Trials - - 31
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Juvenile Books.
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ertrude - - - - 26
Howitt's Boy's Country Book - 12
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Laneton Parsonage - - - 26
Mrs. Marcet's Conversations - - 19
Margaret Percival - - - - 26
Mariyat’s Masterman Ready - - 19
& Mission - - - 19
ge Settlers in Canada - 19
& & Privateer's Man - - 19
Osborne's Oceanus -. - - 22
Passages from Modern History - 28
Pycroft's English Reading - - 24


























Pages.
Loudon's Gardening - - - 17
“ Plants - - - - 17
& & Trees and Shrubs - - 17
M4 Culloch's Geographical Dictionary 18
&
Dictionary of Commerce 18 ||
Murray's Encyclop. of Geography - 22
Ure's Dictionary of Arts, &c. - - 3
Webster's Domestic Economy - 32
Poetry and the Drama.
Aikin's (Dr.) British Poets - - -3
Flowers and their kindred Thoughts 22
e 2
Fruits from Garden and Field - 22
Goldsmith's Poems illustrated - 9
Gray's Elegy, illuminated - - 22
Hey’s Moral of Flowers - - - 11
* Sylvan Musings - - - 11
Kent's Aletheia - - • – 14
L. E. L.'s Poetical Work - - 15
I,inwood's Anthologia Oxoniensis - 16
Macaulay's Lays of Ancient Rome 18
Mackay's English Lakes - - 18
Montgomery's Poetical Works - 21
Moore’s Poetical Works - - 21
& & Lalla Rookh - - - 21
& & Irish Melodies - sº - 21
& & Songs and Ballads - - 21
shakspeare, by Bowdler gº - 27
Southey's Poetical Works - - 28
gº British Poets - - - 28
Swain's English Melodies - - 29
Taylor's Virgin Widow - - 29
Thomson's Seasons illustrated - 30
“ edited by Dr. A.T. Thomson 30
Political Economy & Statistics.
Banfield and Weld's Statistics - 3
Gilbart's Treatise on Banking - 9
Gray's Tables of Life Contingencies 10
Kay On the Social Condition, &c.,
of Europe - - - tº - 14
ſlaing's Notes of a Traveller - - 15
M’Culloch's Geog. Statist. &c. Dict. 18
&&. Dictionary of Commerce 18
& & Statistics of Gt. Britain 19
& & On Funding & Taxation 19
Marcet's Political Economy - - 19
Tooke's Histories of Prices - - 30
Religious and Moral Works
Amy Herbert * º * *
Blakey. On Christianity - - -
Bloomfield's Greek Testament s
& & College and School do.
&g Lexicon to do. –
Book of Ruth (illuminated) -
Burder's Oriental Customs -
Burns's Christian Philosophy
Callcott's Scripture Herbal -
Conybeare and Howson's St. Pau
Cook's Edition of the Acts -
Cooper’s Sermons - -
Dale's Domestic Liturgy
Dibdin's Sunday Library
Discipline – - -
Earl's Daughter (The) -
Ecclesiastes, illuminated - -
Englishman's Greek Concordance
Englishman's Heb.&Chald. Concord.
Etheridge's Acts and Epistles -
Forster's Hist. Geography of Arabia
º: * * -- - *
|
:
;l2
2
i
Hook's Lectures on Passion Week ll
Horne's Introduction to Scriptures 12
** Abridgment of ditto - 12
Howson's Sunday Evening -
Jameson's §. Legends -
&g Monastic Legends -
Jebb's Translation of the Psalms
Jeremy Taylor's Works - " -
Kip's Christmas in Rome -
* Conflicts of Christianity
Laneton ºº::
Letters to My Un
“ on Happiness - -
Maitland's Church in the Catacom
& & On Prophecy --
Margaret Percival - - , -, *
Marriage Service (illuminated)
Maxims of the Saviour - -
Milner's Church History º
Miracles of Our Saviour *
Montgomery's God and Man-
Moºre on the Use of the Body
ſº
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S 19
l
5
l
3
Soul and Body 21
** 's Man and his Motives 21
Morell's Philosophy of Religion 21
Mosheim’s Ecclesiastical History- 22
Neale’s Closing Scene - - - 22
Newman's (J. H.) Discourses - 22
Paley's Evidences, &c. by Potts - 23
f’arables of Our Lord - - - I3
Parkes's Domestic Duties - - 23
Sandford's Parochialia - - - 26
Sermon on the Mount (The) - - 23
Sinclair's Journey of Life - - 27
* Business of Life - - 27
Medicine,
Pages.
Bull's Hints to Mothers - , , - - 5
“ Management of Children - 5
Copland's Dictionary of Medicine - 7
Elliotson's Human Physiology - 8
Latham On Diseases of the Heart - 15
Moore On Health, Disease,&Remedy 21
Pereira. On Food and Diet - - 24
Reece's Medical Guide - * - 25
Thomson. On Food * * - 30
Miscellaneous.
Allen On Prerogative - - - 3
Blakey's Philosophy of Mind - 4
Coad's Memorandum - wº - 6
Colton's Lacon - - sº - 6
De Morgan. On Probabilities - 16
I)e Strzelecki’s New South Wales - 7
Dresden Gallery - ... - - - 8
Dunlop's History of Fiction - - 8
Graham's Englis 9
Grant's Letters from the Mountains ll
Hooker's Kew Guide - - -
Howitt's Rural Life of England - 12
6 & Visits to Remarkable Places 12
&g Domestic Life of Germany
Jeffrey's#. Contributions - 14
Kay On Education, &c., in Europe 14
Loudon's Lady's Country Comp. - 17
Macaulay's Crit. and Hist. Essays 18
Mackintosh's Miscellaneous Works 18
Maitland's Church in the Catacombs 19
Necker De Saussure On Education 23
Pascal's Works, by Pearce - 23 & 24
Plunkett On the British Navy - 24
Pycroft's Collegian's Guide - - 24
“ English Reading - - 24
Rich's Comp. to Latin Dictlonary 25
Richter's Levana - - - - 25
Riddle's Latin Dictionaries – - 25
Rowton’s Debater - - - 26
Seaward's Narrative of his Shipwreck26
Sir Roger de Coverley - - 27
Smith's (Rev. Sydney) Works - 27
Southey's Common-place Book - 28
gº The Doctor, &c. - – 28
Stephen's Essays - - - - 29
Stow's Training System - - 29
Thomson. On Foo º e - 30
Townsend's State Trials - - 31
Walker's Chess Studies - * - 31
Zumpt's Latin Grammar * - 32
Natural History.
Catlow's Popular º, - 5
Doubleday's Butterflies and Moths 7
Ephemera and Young On the Salmon 8
Gray and Mitchell's Birds - - 1
Kirby and Spence's Entomology - 15
Lee's Taxidermy . . . - . . . - 15
“ Elements of Natural History #
Maunder's Natural History - - 20
Stephens's British Beetles - . ... - ??
Swainson. On Study of Natural Hist. 16
& & Animals - - - - 16
tº 3. wº- ºr- • 16
&ć Quadrupeds - - - 16
&g Birds - - - – 16
& Animals in Menageries - 16
& & Fish, Amphibia, &c. - 16
& & [nsects - - - - - 16
& & Malacolo * º - 16
& & Habits and Instinc -
Turton's Shells of the British Islands
Waterton's Essays on Natural Hist. 32
Westwood's Classification of Insects 32
Youatt's The Dog - - - - 32
£& e Horse * sº - 32
Novels and Works of Fiction.
Dunlop's History of Fiction – 8
Eötvös’ Village Notary - - - 8
Hall's Midsummer Eve - - - 10
Lady Willoughby's Diary ... - - 32
Ilandor's Fountain of Arethusa - 15
Madame De Malguet - - - 19
Mariyat’s Masterman Ready - - 19
& Settlers in Canada - 19
&&. Mission - - - - 19
&&. Privateers man, - - 19
Sinclair's Sir Edward Graham - 27
Sir Roger de Coverley - - - 27
Sketches (The) -- «E º 27
Southey's The Doctor, &c. - 28
Twelve Years Ago: a Tale - 31
1vol. Cyclopedias& Dictionaries.
Blaine's Rural Sports - - - 4
Brande's Science, Literature, & Art 5
Copland's Dictionary of Medicine -
Cresy's Civil Engineering - 7
Gwilt's Architecture - - - 10
Johnson's Farmer's Encyclopaedia 14
Johnston's Geographical Dictionary 14
Loudon's Agriculture. - - - 17
£& Rural Architecture - 17
Pages
Smith's (G.) Perilous Times -, -, - 28
“ “ Religion of Anc. Britain 28
& ºr * Sacred Annals - - 27
“ (Sydney) Sermons ...- <-
ft ºt Moral Philosophy 27
“ (J.) St. Paul 28
Soames' Latin Church - - - 28
Solomon's Song, illuminated - 23
Southey's Life of Wesley - - 29
Stephen's Church of Scotland – 29
Tate's History of St. Paul - - 29
Tayler's Lady Mary - - - 29
{g argaret; or, the Pearl – 29
“ . (Isaac) Loyola - - 30
Thumb Bible (The $º - 30
Tomline's Introduction to the Bible 30
Turner's Sacred History - - 31
Twelve Years Ago - - - 31
Walker's Elementa Liturgica - 31
Wilberforce's View of Christianity 32
Wilson's Lands of the Bible - - 32
Wisdom of Johnson’s Rambler, &c. 14
Woodcock's Scripture Lands - - 32
Rural Sports.
Blaine's Riº of Sports - 4
Ephemera on Angling - - - 8
& Book of the Salmon - 8
Hawker's Instructions to Sportsmen 11
Loudon’s Lady's Country Comp. - 17
Pocket and the Stud - - - - 10
Practical Horsemanship • - 10
Ronalds's Fly Fisher - ... - - 26
Stable Talk and Table Talk - - 11
The Stud, for practical purposes - 10
Wheatley's Rod and Line - - 32
The Sciences and Mathematics.
Baker’s Railway Engineering - 3
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Brande's Dictionary of Science, &c. 5
Brewster's Optics - - - - 16
Conversations on Mineralogy ~ 6
Cresy's Civil É. * -->
De la Beche'sGeology of Cornwall,&c. 7
Donovan's Chemist - - - 15
Farey On the Steam Engine - - - 9
Fosbroke. On the Ancient Arts, &c. 16
Gower’s Scientific Phenomena - 19
Herschel's Natural Philosophy - 16
16
stronomy – - *
é & Outlines of Astronomy 11
|Holland's Manufactures in Metal - 16
Humboldt's Aspects of Nature - 12
gé SIYAOS •º - • 13
Hunt's Researches on Light - - 14
Kane's Chemistry - - - - 14
Kater and Lardner's Mechanics - 16
Lardner's Cabinet Cyclopædia - 16
& & Hydrostatics&Pneumatics 16
&g and Walker's Electricity 16
gé Arithmetic - sº - 16
& f Geometry - - - 16
&g Treatise on Heat - - 16
Marcet's (Mrs.) Conversations - 19
Matteucci on Physical Phaenomena 20
Memoirs of the Geological Survey 20
Mossley's Practical Mechanics - 22
•rºm gi - g& Å *... = a- - - R. 22
Owen's Lectures on Comp. Anatomy 23
Peschel’s Elements of Physics - 24
Phillips's Fossils of Cornwall, &c. 24
$& Mineralogy, by Miller - 24
&g Treatise on Géology - 16
Portlock's Geology of Londonderry 24
Powell’s Natural Philosophy - - 16
Schleiden's Scientific Botany - 26
Steam Engine ...? -- sº - 3
Thomson's School Chemistry - 30
Travels.
Baxter's Impressions of Europe - 3
Borrer's Algeria - * - - 4
Chesney's Euphrates and Tigris - 6
Costello's North Wales - - 7
Coulter’s Pacific - - - - 7
De Strzelecki’s New South Wales - 8
Erman’s Travels through Siberia - 8
Forester and Biddulph's Norway - 9
Head's Tour in Rome – - - 11
Humboldt's Aspects of Nature - 12
Kip's Holydays in Rome - - 14
Laing's Notes of a Traveller - - 15
Mackay's English Lakes - - 18
Marryat's Borneo.- ...— ... - 19
Mitchell's Australian Expedition - 21
Power's New Zealand Sketches - 24
Seaward’s Narrative - - - 26
Wilson's Travels in the Holy Land 32
Woodcock’s Scripture Lands - 32
Veterinary Medicine, &c.
Pocket and the Stud - - - 10
Practical Horsemanship - - 10
Stable Talk and Table Talk • - 11
Stud (The) - - - - 10
Thomson. On Fattening Cattle - 30
Youatt's The Dog - - - - 32
** The Horse - - - 32
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14 NEW WORKS AND NEW EDITIONS
-, *, *v --~~ x -- ~ - , ~ *---- r * * * **, * * * * *-* * * * * * **.*.*.*, 2* /*.*.*.*-*-** *-*...* * * -- .*_º -- *.
JEBB. — A LITERAL TRANSLATION OF THE B00K OF
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KIRBYs SPENCE AN INTRODUCTION TO ENTOMOLOGY:
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. Genius and Writings of Pascal.
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;i
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5. Revolution and Reform.
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[June 15, 1850.
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