Читать книгу Remarks on the Present System of Road Making - John Loudon McAdam - Страница 15

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The Select Committee appointed to take into consideration the Acts now in force regarding the Turnpike Roads and Highways in England and Wales, and the expediency of additional Regulations for their better repair and preservation, and to report their Observations thereupon from time to time to the House; and to whom the Petitions of Joseph D. Bassett, John Richards Reed, and John Martin; and of several Trustees of Turnpike Roads in the Counties of Middlesex, Kent, Surrey, and Sussex, were referred;—Have, pursuant to the Orders of the House, examined the matters to them referred, and have agreed upon the following REPORT:

Your Committee considered it their indispensable duty to direct their first attention to the Reports of former Committees, appointed to investigate the same important subject; in these Reports, as well as in the documents subjoined to them, are to be found much scientific information, and many valuable suggestions, which have doubtless tended to aid the progress of improvement in the art of making and preserving roads. Still the object of amending the laws which relate to them has been unattained, the bills introduced with a partial view to that purpose having been lost in their progress through Parliament, and the suggestions for more general improvements having been allowed to remain without further notice.

If your Committee may be permitted to assign the probable reasons of this discouraging result of the labours of their predecessors, they would venture to suggest, that too wide a field of inquiry was taken to lead to immediate practical benefit: that some of the systems most confidently recommended were of a novel and speculative nature; that the regulations which it was proposed to found on them too strongly affected the interests of vested property; and that even the most valuable information communicated to the House rested upon ingenious theories, which had then been very partially, if at all, reduced to practice, or submitted to fair experiment.

As the considerations which influenced the appointment of the present Committee, avowedly sprang from the successful trial of an improved system of making roads, your Committee have judged it right to institute a particular examination into all the circumstances of that experiment, and the various instances in which the example has been followed.

Mr. John Loudon MᶜAdam having for many years directed his attention, as a magistrate and a commissioner, to the improvement of roads, was induced to accept the situation of general surveyor of an extensive trust round the city of Bristol.

The admirable state of repair into which the roads under his direction were brought, attracted very general attention; and induced the commissioners of various districts to apply for his assistance or advice.

The general testimony borne to his complete success wherever he has been employed, and the proof that his improvements have been attended with an actual reduction of expense, while they have afforded the most useful employment to the poor, induce your Committee to attach a high degree of importance to that which he has already accomplished. The imitation of his plans is rendered easy by their simplicity, and by the candour with which he has explained them, though ability in the surveyor to judge of their application must be understood as an essential requisite.

Your Committee have dwelt on this improved system of making roads, as a preliminary consideration to any alteration of the laws, being persuaded that it is of essential importance to adapt the law to new circumstances; that the first step requisite is to take effectual measures for ensuring the formation of good roads; and that their preservation afterwards, if proper principles for their repair be once adopted, will require fewer legislative regulations than former inquirers have deemed necessary.

For a full elucidation of the methods pursued by Mr. MᶜAdam your Committee beg leave to refer to his evidence in the Appendix annexed, as well as to that of his son, and of different Commissioners who had witnessed the success of his plans.

But though your Committee have limited their first inquiries to the actual state of the turnpike roads, and the results of recent plans for their improvement, they have by no means confined their researches to the operations or the opinions of one individual. In the evidence which they subjoin will be found, in the first place, a description of the present general defects of the turnpike roads, given by those whose employments and interest render them best acquainted with the nature and extent of the evil; and this exposition is followed not only by the detail of Mr. MᶜAdam’s system, already alluded to, but by the evidence of other eminent surveyors and civil engineers, under whose superintendence the latest and most perfect improvements have been effected.

Your Committee consider that high praise is due to the superior science exhibited by Mr. Telford, in tracing and forming the new roads in North Wales; but they contented themselves with a general inquiry into his plans, aware that their merits would be particularly brought under the eye of the House in the Reports of the Committee on the Holyhead Roads.

The concurrent testimony of all the witnesses examined by your Committee establishes the fact that the general state of the turnpike roads in England and Wales is extremely defective, but at the same time proves that proper management is alone wanted to effect the most desirable reformation. It is not the least interesting result of the researches of your Committee, that the most improved system is demonstrated to be the most economical; that even the first effectual repair of a bad road may be accomplished with little, if any, increase of expenditure; and that its future preservation in good order will, under judicious management, be attended with a considerable annual saving to the public.

There is no point upon which a more decided coincidence of opinion exists amongst all those who profess what may now be called the science of road-making, than that the first effectual step towards general improvement must be the employment of persons of superior ability and experience as superintending surveyors.

Your Committee, fully concurring in this opinion, have anxiously considered in what manner this object can be attained with the least expense to the country, and the least injurious or offensive interference with existing customs and authorities.

Various are the plans which have been brought under their consideration for altering the general constitution of the laws affecting the management of Turnpike Roads, proposing either to annex the superintendence and patronage to some of the existing departments of Government, or to constitute a new Board of Commissioners expressly for this object.

Your Committee forbear to detail the reasons which induce them to withhold their recommendation from any of these plans, whatever advantages they might afford in unity or vigour of management.

They are of opinion, that many important reasons exist for leaving generally the direction of the affairs of the different turnpike trusts in the hands of their respective Commissioners, whose experience, character and interest, afford the best pledges of ability, attention and economy. If your Committee think it necessary to propose, in one respect, an interference with their appointments, it by no means proceeds from any distrust of their judgment or integrity.

The duties of a head surveyor demand suitable education and talents. These qualifications must be fairly remunerated; and it is evident, that the limited extent of the funds of Turnpike Trusts, in general, do not afford the means of paying to such an officer an adequate salary. The difficulty might in many instances be obviated by voluntary associations, but where the system is wished to be universal, it ought not to be left to so precarious a dependence.

The plan to which your Committee, after full consideration, are disposed to give the preference, is that of empowering the magistrates of every county, assembled in quarter sessions, to appoint one or more surveyors general, who shall have the superintendence and management of the turnpike roads within the county, under the authority and direction of the Commissioners of the different trusts. It is not necessary at present to enter on the detailed regulations by which the executive duties of such an officer should be prescribed, so as to keep them under the deliberative control of the Commissioners, whose meetings he should attend, and to whom he should uniformly report on the improvements and alterations he may wish to recommend within their trusts.

Your Committee are of opinion, that the most eligible mode of paying the salary of this officer would be by an uniform rate per mile upon all the roads within the county; to be fixed by the magistrates at quarter sessions, and paid from the funds of the respective trusts.

The success of this plan of appointing general county surveyors will, in a great degree, depend upon the firmness evinced by the magistrates, in laying aside every consideration of personal favour, and impartially looking to integrity, talents, and energy of character, as the recommendations for office; some skill in the science of an engineer should also be regarded as a valuable qualification.

Your Committee have manifested their general disinclination to any interference with the honourable and gratuitous discharge of the functions of the Commissioners of Turnpike Trusts; in one instance, however, they are disposed to depart from the principle which they have recommended. A full consideration of the evidence relative to the defective state, and injudicious management of the roads round the Metropolis, and of the advantages which would accrue from a consolidation of the numerous small Trusts into which they are most inconveniently divided, induce your Committee to express to the House their strong recommendation, that a special Act of Parliament may be passed for uniting all the Trusts within a distance of about ten miles round London under one set of Commissioners. It is to these roads that the heaviest complaints made by the coachmasters, and the surveyor of mail coaches under the post-office, principally apply; and whether an improvement is to be effected by the importation of flint, and other common materials, or by laying granite pavement in the centre or sides of the roads, it is evident that, “the measure to be performed in an economical and efficient manner, must be done upon an extended scale it must become one interest, directed by one select body of men, of weight, ability, and character.”

It is the object of the recommendation of your Committee to render the roads round the Metropolis a pattern for the kingdom, by the introduction of the most judicious system of formation and repair, which will thus be brought under general inspection; and the spirit of improvement, radiating from this centre, may be expected to spread with rapidity throughout the country, and to diffuse “those incalculable public and private advantages,” which a former Committee anticipated from the accomplishment of this great national object.

Your Committee are deeply sensible of the consideration due to the persons whose property is invested in the funds of these Trusts, as well as to those who now act as Commissioners. They are perfectly aware of the jealousy with which the House may view any proposition for the creation of new offices of patronage and profit; and they do not disguise their conviction, that it will be found expedient to remunerate those efficient Commissioners who are expected to devote their time to the performance of active duties.

Your Committee however anticipate, that if the House shall approve the formation of a Board of Commissioners for this object, they will deem it proper to place at its head some persons of eminent station and character, as a security for the independence and respectability of its proceedings.

All these considerations certainly require cautious deliberation, and delicacy in arranging the plan; but your Committee feel confident that the wisdom and judgment of the House will find the means of surmounting the difficulties, without injustice, or hazardous innovation.

It is obvious, that the formation of this distinct central authority will be best effected by the introduction of a separate Bill, while the plan of empowering the magistrates to appoint county surveyors would naturally form part of a general Bill for amending the laws relating to Turnpike Roads.

Your Committee have weighed, with much attention, the comparative advantages of an attempt to amend these laws by supplemental enactments, and of the comprehensive plan of endeavouring to embody in one Act of Parliament all that is valuable in the old laws, with the addition of such new regulations as are acknowledged to be desirable.

The Committee of 1811 were impressed with the expedience of “combining the old and new regulations into one general code, divided into two branches, one regarding the Highways, and the other regarding Turnpike Roads,” though they considered that “it would require more time and labour than those who have not had some experience in the drawing up of such laws can be at all aware of.”

“Your Committee do not hesitate to avow their opinion, that unless this task, however arduous be accomplished, the laws relating to roads must remain in an incomplete, uncertain, and inconvenient state. They cannot doubt that the House will agree with them that the promotion of such a measure is deserving of legal assistance on the part of his Majesty’s government, to those who are disposed to apply their time and attention to the undertaking; and they indulge the hope, that if the House shall think fit to reappoint a Committee for the same object in the next session of Parliament, much may be found done for the preparation of such a bill.”

Your Committee themselves have not been inattentive to many of the amendments which they think it ought to embrace, some of which they proceed to particularize for the consideration of those members whose attention may be drawn to the subject of this Report.

There is no object which appears more deserving of regulation than the expense attending the passing and renewing of Turnpike Acts. This might be lessened by comprising in a general Act such customary clauses as are applicable to all trusts, and by dispensing with the attendance of witnesses in London to prove the notices required by the orders of the House; but a still greater advantage would be gained by extending the period of the duration of these Acts, and providing for their renewal without the payment of fees.

A general commutation for statute labour appears to be required, both for public advantage and private convenience. The amount of composition might be levied as a rate; and it will become a subject of consideration, whether some better principle may not be laid down for apportioning the money thus collected between the highways and turnpike roads.

The advantage of authorizing parish officers to contract with the commissioners for the repair of the roads passing through the parish by labourers belonging to it, has been strongly pressed on the attention of your Committee, but though they are disposed to admit that such a system may often afford desirable relief to the parishes, they are not equally satisfied that it will have a tendency to promote the improvement of the roads. They think it right to bring the proposition under the consideration of the House, though they are too diffident of its utility to venture to add to it their recommendation.

It seems generally admitted, that the present exemptions from toll granted to broad-wheeled waggons require to be revised, as the enormous weights which they carry render them more destructive to the materials of the roads than their supposed advantage in consolidating them can compensate. Without entering into the yet unsettled controversy respecting the superior utility of conical, barrelled, or cylindrical wheels, for the purpose of draught, it is perfectly evident, that the narrow part of the surface upon which wheels of the two first descriptions meet the ground, cannot give them the advantage of the roller. As soon as impolitic exemptions shall be abolished, and the tolls be regulated upon all carts and waggons, with wheels of a moderate width, in proportion either to the weight carried, or the number of horses, there will no longer be the same temptation to carry excessive loads; and it is probable that a new practice, regulated by private interest, may render it unnecessary to limit the weight allowed to be taken.

Some regulations appear to be absolutely required in respect to the conduct of tollkeepers, and the liability of renters, for the penalties imposed on their servants.

Your Committee have thus noticed a few of those objects of amendment which have presented themselves to their consideration. To reduce these and other proposed improvements into proper form—to digest the various provisions of former Acts—to expunge what is useless or injurious,—to reconcile what is contradictory—to re-model and arrange what is sound and useful, will require the assistance of the best legal judgment. Your Committee however, after having thus availed themselves of the power granted by the house, of reporting the partial result of their investigations, will continue to make such inquiries, and to collect such materials, as may pave the way for the accomplishment of that important undertaking.

It will at once be seen, that they have confined themselves to one branch of the work committed to them, having conceived it to be more judicious not to distract their own attention and that of the House by too many subjects of inquiry, but to pursue that which they first undertook to a practical result.

Should the House adopt their recommendation of renewing the Committee in another session, the subject of the Highways will naturally engage their attention as soon as they shall have fully matured the plan for amending the laws relating to the Turnpike Roads.

25th June, 1819.