How this can be accomplished.
I have been unable to ascertain who made the extraordinary proposal, that every ship from the time her keel was laid until she was loaded and ready for sea should be under the superintendence of officers appointed by the Board of Trade. In justice to Mr. Plimsoll I must state that, though I have read his book, and nearly all his speeches, I cannot trace any recommendation that the merchant ships of this country should be placed, either as regards construction, inspection, or repair, altogether, under the control of the Board of Trade or of any other Government department.[299] What Mr. Plimsoll mentions seems to me, to be a matter to which I have often referred in the course of this work, that we do not utilise to anything like the extent we might the vast private resources within ourselves, and that we might do so to advantage, so far as regards the survey of our merchant ships, not one of which he suggests should be allowed to go to sea unless she is seaworthy. Now this is a suggestion which few men would be bold enough to decline to consider, and Mr. Plimsoll points out how this may be secured by means already at our disposal. Perhaps in the way he puts it, the difficulties with which it is surrounded could not be overcome; but the maxim cannot be ignored, as it is sound in principle.
To leave the survey of our ships to any one private institution, not on a sufficiently broad basis, such as Lloyd’s Register, might create as many evils as a general Government survey, and, besides creating jealousy on the part of other somewhat similar institutions or associations, might be considered contrary to the rules of sound government. But these institutions could be enrolled and licensed, as various other associations now are, and empowered to grant certificates of seaworthiness, which every ship above a certain tonnage would require to produce before she was cleared at the Custom House. Or they might be welded into one great national institution directly controlled by all the various branches of the shipping community in harmony with their sentiments, and alive to the wants and necessities always arising through the growth and development of trade and commerce.
Individuals may do wrong, and, though it may be for their interests to have a good sound ship, there is no denying the fact that ships are sent to sea which are not seaworthy; but corporations and associations cannot do wrong with the same impunity. If they did, they would be deprived of their licence, and there would be a check, one against the other, which is not the case with individuals. Or, on the other hand, a great representative institution would be efficiently checked and influenced by public opinion, and the voice of those immediately concerned. Were Government to require these associations to classify ships, then I agree with the Commissioners, that it is not its province “to ascertain whether a ship is fit for the conveyance of dry and perishable goods,” but, from the debates in Parliament, and numerous articles in the public press, it is clear that many persons are of opinion, that it is the duty of Government to be reasonably satisfied that a ship is seaworthy before she proceeds to sea. We exercise this duty in the case of railways, mines, and manufactures of various kinds, and events have shown, however much we may have already done to save life and property at sea, that the exercise of a similar duty, if practicable, is at least worthy of consideration in the case of ships.
As the great bulk of the vessels belonging to the United Kingdom are already classed, the certificate of classification they now hold would suffice as a certificate of seaworthiness. Those which are not now classed in Lloyd’s Register, or in any other association, but which belong to the great steam companies, or to very large shipowners, are so well known for their good qualities as not to require classification, and for this reason classification, or, at least, survey for seaworthiness, even if compulsory, could not be a serious hardship to them.
Practically the number of vessels now unclassed is confined to the very good or to the very bad ships. With the owners of the former I should think there would be no difficulty in dealing; they do not class their ships either because they do not care to incur the expense (underwriters being ready to insure them at the lowest current premiums), or because they think they can construct ships, in their own way, superior to those which are built to rules for classification. But such men, while they might protest, and justly so, against being interfered with in a business they more thoroughly understand than any government or private surveyor, and in which they take a laudable pride (for such men are the pillars of our maritime greatness), would, I doubt not, have no objection to an authorised surveyor inspecting their ships, and would readily pay the moderate fee required to cover the cost of a certificate of seaworthiness.[300]
For the information of the general public I may state that there is a very great difference between the highest grades of vessels and those which any surveyor who knew anything about his business would pronounce to be unseaworthy. In the case of classed ships, the certificate of classification would suffice; but, from the owners of ships who do not class, many intelligent persons are of opinion that a certificate of seaworthiness should be required. They argue, and with great force, that those persons who do not class their ships, because they will not bear inspection, have no right to imperil the lives of others for their own gain. Life is not a thing of price; if it were, the rich would live, and the poor would die. And when a Shipowner declines to bear the expense of making his vessel seaworthy, he places in jeopardy the life of the sailor to benefit himself.
Registration Associations.
Lloyd’s Register, its great importance.
There are very easy means of ascertaining the seaworthiness of a ship, when first sent afloat, already at our disposal, as those of my readers, who are not conversant with this subject, will find by referring to the Appendix,[301] where a history of Lloyd’s Register of British and Foreign Shipping will be found. That association has a well-organised and extensive staff of surveyors, through whom, at a very small cost, this fact could be ascertained. My readers will also there see the immense advantage that association has afforded in the improvement of our ships and the power it possesses of rendering still greater public service. But while rivalry amongst associations for classification is unquestionably injurious,[302] it may not be considered advisable that Lloyd’s Register alone should issue certificates of seaworthiness. There are other similar associations whose certificates would answer the object in view equally well, and it is for Government to decide (should an attempt be made to carry this principle into practice) what associations shall be empowered to issue the requisite certificates.