The Select Committee appointed to inquire into the shipwreck of British vessels, and the means of preserving; the lives and property of shipwrecked persons, and to whom the reports of 1836 and 1839, and the several petitions on the subject, were referred, and who were empowered to report thereupon from time to time to the House, have considered the matters referred to them, and have agreed to the following, being their First Report:

1. Their inquiry has embraced two points first the loss of British vessels, and the means of diminishing that loss in future ; second, the means of preserving the lives and property of shipwrecked persons.

Having obtained returns of the British ships lost during the years 1841-2-3, as regards the whole of the mercantile marine, from Lloyd's, and also of the loss of timber-laden ships from British America to Europe, from September, 1839, the date from which the Act took place prohibiting the deck-loading of these ships, they have been enabled to make a comparison ; first, of the general loss of ships in the years 1841-2, with those lost in 1833-4-5, in proportion to the re-registered tonnage; and secondly, of the loss of timber-ships, in the years 1840-41 and 1842, with those lost in 1836-7-8. In both eases they have the satisfaction to find, that the loss has been less in the later periods than in the earlier, more especially as regards timber-laden ships, and the lives of the crews employed on board of them, where there has been a reduction in loss of ships in each year from fifty six to twenty-three; and, as near as can be calculated, a saving of 200 lives of seamen. In no one instance during the last period do they find, in those ships to which the Act of Parliament alone applies, any of those horrible cases stated in the Report of the Committee of 1839, of the crews of several ships in each year having been reduced to the necessity of existing on the remains of their comrades. They feel, however, bound to report one of this description, which appears to have taken place but a short time ago, reported from New York, 14th December, 1842, in regard to the Naïad, bound from Halifax to Demerara, where one man remaining only out of a crew of seventeen, was taken from the wreck fifty days after the 22nd of September, when the ship had been upset. Your Committee consider that no ship can be seaworthy, when her upper deck is lumbered with cargo of any kind ; and they strongly recommend to the consideration of Her Majesty's Government, a still further extension of the prohibitory clauses of the Act of Parliament against the deck-loading of ships.

2. Your Committee felt it their duty to enquire into those points which seemed to them more essentially to regard the security of shipping

1. The character of ships.

2. The competency of Masters and Mates.

3. The facility of obtaining good Pilots.

4. Harbours of Refuge.

5. Lighthouses, beacons, &c. Charts and compasses.

CHARACTER OF SHIPS.

3. The new association formed for the survey and classification of merchant vessels, especially alluded to and described in the Report of the Committee of 1836, under the name of Lloyd's Register Society for British and Foreign Shipping, has made regular progress from that time ; and, as appears by the evidence of the Secretary, any objections entertained against it in the first instance are now removed, and ship owners are generally ready to submit their ships and stores to the fair examination of the surveyors of the society, for the purpose of having them classed in the register-book according to their real quality.

Your Committee beg to call attention to the return laid before the House, dated 24th February, 1843, of the number of ships of war and government packets which have foundered at sea and have not been heard of, from the year 1816 to the present time; eleven of which appear to have been of the class of ten-gun brigs, six of those having been employed in the packet service.

Your Committee recommend to the consideration of the House the propriety of an inquiry being instituted as to the necessity of introducing an Act of Parliament, placing all steam-vessels carrying passengers under the superintendence of competent persons, to be appointed by Government.

COMPETENCY OF MASTERS AND MATES

4. Upon this subject evidence of a. somewhat contradictory character has been laid before your Committee. Opinions have been advanced and the example of foreign nations cited, in favour of the establishment of boards for the examination of masters and mates ; whilst, on the other hand, most of the leading shipowners appear to be decidedly hostile to the enforcement of examination by Act of Parliament, considering such compulsory examination an unnecessary interference with their interest in the selection of such persons as they may think most likely to serve them best in the various duties they have to perform : all parties at the same time agreeing to the propriety of encouraging the increase of scientific knowledge as much as possible in the mercantile marine.

Your Committee, however, after carefully weighing the evidence adduced, consider that, under all circumstances, it would materially promote science, and prevent the loss of life and property, if a legislative enactment were introduced by the government, establishing local boards for the purpose of examining into the ability, conduct, and character of all who wish to qualify as masters and mates in the merchant service. And your Committee further recommend the establishment of schools for the purpose of teaching navigation in the different sea-ports, to be supported by a small tonnage duty, to be levied on the vessels belonging to such port.

Your Committee have examined many witnesses on the propriety of investigating the conduct of the masters, mates, and crews of ships lost, and most of the witnesses are favourable to such investigation ; and the Committee therefore recommend that an inquiry into the causes of the loss of ships should on all occasions take place.

THE FACILITY OF OBTAINING GOOD PILOTS

5. No point can be of more importance to the security of shipping than this ; and although the boards established under the Lord Warden of the Cinque Ports, the Trinity Houses, and other board, are as affective as can be expected in their local arrangements, yet, from changes in time and circumstances, and the great increase of shipping, the Committee strongly recommend that a commission of competent persons should, every three year's, visit the different pilot stations of the United Kingdom and report to the Board of Trade any arrangements or alterations that may appear to them calculated to promote the security of shipping and the commercial interests of the country. A change has been stated to the Committee to have taken place in late years, by the diminution of hovelling boats cruising in the British Channel, with boatmen licensed to pilot ships into the Downs, for the purpose of getting employment on board homeward-bound ships arising from the want of that encouragement which would remunerate them for so doing partly attributed to the alteration which took place some years ago in the Cinque Ports' pilots cruising off Dungeness. This statement appears to be confirmed by the report of the commissioners appointed in 1836, who admitted the justice of the boatmen's complaint, and recommended a general regulation, "that if a master chooses to employ a boatmen or any other person until a pilot presents himself, the former shall be entitled to part of the whole charge for pilotage, proportioned to the distance which he shall have conducted the vessel, provided he be not superseded by a regular pilot within a reasonable distance after the vessel shall have come within the limits of pilot water." The lord warden approves of this proposed regulation, and the Committee strongly recommend its enforcement by legislative enactment.

The Committee wish to advert to the evidence of Mr. Ingram, and to the letter from Mr. Mason, read before the Committee, on 18th July, as to the state of the pilotage on the Hooghly, as a fit subject for further inquiry at Calcutta.

HARBOURS OF REFUGE

6. Witnesses of the highest authority have given evidence before the Committee, proving the want of harbours accessible at all times of tide, and urging the necessity which exists for their erection on those parts of the coast where such harbours do not exist ; and your Committee strongly recommend the immediate attention of the government and the legislature to this subject.

The witnesses to whose evidence the Committee refer, have pointed out different localities as most eligible ; but the Committee abstain from recommending any particular situations for harbours, from a conviction that these points will be best decided on by a body composed of scientific and competent persons whose attention should be specially and exclusively directed to this subject.

Attaching the greatest importance to this vast project on national grounds, as well as for the protection and security of trade, your Committee think it most desirable that as large an appropriation of national funds as call be made, be devoted annually to the construction of harbours of refuge in such localities as may be recommended.

To the various plans and models of floating break-waters, the Committee have devoted their best attention ; and, considering the expense of constructing and maintaining them in repair, compared with the durability of solid breakwaters, (which should be calculated to endure for ages) your Committee are of opinion, that whatever may be decided on, as to the formation of harbours of refuge, such, national works should possess the most perfect solidity, to resist the force of any sea, afford shelter to the trade, and the great and essential advantage of having powerful batteries erected on them.

LIGHTHOUSES, BEACONS, &c..

7. The lighthouses and beacons around the coast are so immediately under the direction of the Trinity Board, whose attention is constantly directed to these points, that the Committee feel that they have to notice what has been brought before them upon the subject, rather than to express their judgment thereon. The numerous wrecks on the north-west coast of Cornwall induces your Committee strongly to recommend that one or more lighthouses should be erected on that rugged shore. Towen Head appears to your Committee to be the most desirable situation, as it is in evidence that there is already a small pier near thereto, which might be extended, so as to render it a fair harbour of refuge. Models of lighthouses have been brought before them, by Captain Sir Samuel Brown, Mr. Bush, and Mr. Steward ; but as neither of these has been tested, they do not offer an opinion upon them. Two lighthouses erected by Mr. Mitchell upon a new and ingenious principle in regard to their foundation, having now stood the test of more than two years, one upon the foot of the Wrye Sand off Fleetwood, and the other on the Maplin, the Committee do not hesitate to recommend to attention. They feel it right also to notice a beacon erected by Captain Bullock, of the Royal Navy, upon the southern edge of the Goodwin Sands, which has now stood two winters, and having been erected at a very small expense, (not exceeding �55.) may prove of the greatest service if brought generally into use.

Your Committee recommend that sound beacons should invariably be placed near lighthouses as well as on board light vessels, to warn ships of their danger in foggy weather.

COMPASSES AND CHARTS

8. Your Committee have had represented to them the great and unequal deviation of the needle in different vessels and situations, from the local attraction on board, from 3� to 18�, according to a report from the Admiralty, which may have been the cause of the loss of some vessels, from masters not being aware of it, and which can alone be guarded against by the closest attention.

The safety of ships, and the lives of all on board so much depending upon the correctness of charts, a general and constant revision of those most in use is well worthy the continued attention of the government, and would be a great boon to the mercantile marine. Your committee are also of opinion that the attention of shipowners should be called to the propriety of masters being supplied with the latest authorised edition of charts.

In regard to the second point of enquiry, the means of preserving the lives and property of ship-wrecked persons, our Committee have received the evidence of the deputy-comptroller and several officers of the coast guard, who have of late years been more the means of saving the lives and property of shipwrecked persons upon the British coast than any others, from their duty having required their continual look-out upon the spot. From this evidence it appears, that their first object, as the most effectual means of rescuing the crew, upon a wreck taking place, and when it has been impossible for their own boats to live through the sea, has been, to endeavour to effect a communication with the vessel, either, by a life-boat, if they have one, or by a line thrown on board by one of Captain Manby's mortars, or rockets, provided by Mr. Dermot, of Newport, and Mr. Carte, in the Ordnance service at Hull. Either the mortar or rocket, should the distance of the vessel from the shore not exceed 250 or 300 yards, will, in most cases, prove effectual, and indeed many valuable lives have been saved by these means. The comparative value of each of these plans depends upon the greater or less distance they will carry their respective lines against the same force of wind, as it appears by the evidence there is no difference in the correctness of the direction in which they will carry them. They have had given in a comparative statement of trials, which is annexed in the appendix. They consider, that both the mortars and rockets should be furnished to the coast-guard in all stations, where wrecks are likely to take place, as the best mode of effecting a communication with a wreck in extreme cases, when the ship has no means within herself of communicating with the shore, which few if any have at present. Scarcely any ships or steamers are sufficiently prepared with the means of saving the lives of those on board, in case of accident to the vessel by fire, or wreck, or even in the case of an individual falling overboard in severe weather. In regard to steamers, irrespective of their other boats, an invention of Captain George Smith, R N., for fitting the covers of the paddle-boxes, so that they may form perfect boats, and be easily lowered into the water, should be universally adopted. The advantage of this recommendation will be seen by reference to the cases of the Isis and Solway. Every ship should also be required to carry at least one of her boats, fitted upon the principle of a life boat, kept ready for lowering down, in case of need. The numerous lives lost in the case of individuals who may have fallen overboard, as well as of others in the attempt to pick them up, is alone sufficient to justify such a regulation. The evidence of three commanders of East Indiaman, who have all carried boats of this description on board their ships; the deputy-comptroller, and other officers of the coast-guard; the annual reports of the Royal Society for the preservation of life from shipwrecks; and no less than twenty individuals, by letters addressed to the Chairman of the Committee, have recommended such boats as the best and surest means of saving life.

Your Committee suggest that watertight divisions in steam-vessels are calculated to prevent total loss of vessel and machinery, and to ensure the preservation of life, by affording time for the preparation of boats for the reception of passengers and crew : your Committee, however, are not prepared to point out what number of those water-tight divisions should be before and abaft the engine-room and machinery.

The Committee look with admiration to the many instances in which the officers and men upon the coast-guard service have, at the greatest personal risk, exerted themselves in saving the lives of others; and in the case of Lieutenant Lingard, with the loss of his own life, and that of several of the crew, in Robin Hood's Bay.

Your Committee venture strongly to recommend such devotion to the favourable consideration of government as an encouragement to others.

With regard to the preservation of ship-wrecked property, the evidence shows that there is on many parts of the coast a want of that moral principle which should inculcate a just regard for the rights of such property. It is rather looked upon as a chance gift, which each as a right to scramble for as he can, not withstanding the laws which have been passed from the earliest period, to prevent or punish such depredations. (See " Law of Wrecks Considered," by W. Palmer, London, 1843.) The plunder of shipwrecked property on the coast has been carried on to an enormous extent, and this seems to have arisen from there having been no persons on the spot, when a wreck had taken place, to look after the property. Since the establishment however, of the coast-guard, by whom, from different stations, every part of the coast is now watched, this plunder has been much reduced; but still it exists to a considerable degree, as in the case of the Jessie Logan, and the Frances, and other vessels wrecked on the disastrous 13th of January last. By the evidence of Captain Sparshott, and other officers, this system of robbery arises, from the coast-guard having no authority to interfere, excepting where the articles from the wreck are subject to Customs duty. The Lord Warden states, that notwithstanding the strictest orders given by him within the jurisdiction of the Cinque Ports, plunder still takes place.

Your Committee wishing to ascertain the state of the law in other countries, obtained the evidence of Mr. Van Houten, stating that the government of Holland takes charge of all abandoned shipwrecked property for the benefit of the parties to whom it may belong, if claimed within a certain time; if not so claimed it then becomes the property of the government. By the evidence it appears, that the French government takes charge of all shipwrecked property for the benefit of the right owners ; this will be seen by reference to evidence, No. 5741 to 5745, in the ease of the wreck of the Conqueror, off Etaples. The Committee strongly recommend that all abandoned property from wrecks on the coast of the United Kingdom should be vested in the government, in trust for those to whom it may belong: a regular register and account being kept of all such property.

Your Committee recommend an international arrangement to be made, if possible, upon the subject of wrecks, with all other friendly powers, for the return of shipwrecked persons to their own country, and the restoration of preserved property to its right owner.

The Committee consider that some better code of maritime law than that which now exists for the regulation of the duties of master and seamen on board of merchant vessels is much wanted, with a view of increasing the security of shipping, promoting the comfort and health of seamen, and of preventing desertion. Your Committee have received various suggestions for life-boats, safety-capes, and belts; and some drawings and models have been presented for their inspection (a list of which is inserted in the Appendix) ; but not having sufficient means of testing their respective merits, they can only recommend them to the consideration of Her Majesty's Government, in the event of any legislative enactment on that subject.

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