Since the Publication of the early editions of this Essay, the Author
has witnessed with very great satisfaction the amendment of a large
proportion of the Turnpike Roads, and some improvement of the Parish
Roads. That the reformation has not been more extensive and successful,
may be attributed to the error still persisted in by Trustees, of
continuing the services of persons as Road Surveyors, who are not only
altogether ignorant of the business they profess, but full of prejudices
in favour of their own erroneous practice.
Another and a greater error has been committed lately, in several parts
of the Country, and which has entirely arisen from the desire
entertained of using the new method of Road making. This very dangerous
error consists in employing persons who offer themselves as having been
instructed in Road making on scientific principles, without due inquiry
respecting their skill, industry, and moral character.
Among the many persons who present themselves to be instructed, a very
small proportion acquire a competent knowledge of their profession, and
this number is farther diminished by subsequent dismission for
negligence, drunkenness, and dishonesty.
Of these rejected and incapable persons, great numbers are spread over
the Country, soliciting employment; and many have been incautiously
engaged by Trustees, without inquiry either as to their character or
their ability in their profession.
Under the most favourable circumstances for the constant and vigilant
control of a master, whose public credit depends on the economical and
skilful performance of the work, it is difficult to keep sub-surveyors
in the strict line of their duty; but it may be easily conceived how
much the public must suffer from accepting the services of men rejected
for gross misconduct, and placing them in situations of confidence,
altogether freed from the only control capable of being exerted with
effect. This error, although of recent date, has already been attended
with very disastrous consequences in several places.
A practical experience of Six Years, has served to confirm the opinion
of the Author, that the control of Commissioners over surveyors is
altogether ineffectual; whether for direction in their active duties, or
for protecting the funds of Trusts from waste and peculation. The
unceasing control, and minute inspection of a person whom the surveyors
know to be as much their superior in skill and general information, as
in station in society, and in the confidence of the Commissioners, is
absolutely necessary for the protection of the Roads. Where such control
is duly exercised, good management with economy will be the result; and
wherever a mistaken notion of economy shall continue to prevent the
application of such wholesome and necessary control, the roads will be
imperfectly repaired, and the funds dissipated.
It appears from the returns made to Parliament, that the sum annually
raised for the use of the Roads exceeds the neat revenue of the Post
Office; yet is this very large sum expended through the hands of persons
of the lowest rank in society, under an appearance of control; which
equally deceives the public and deludes the expectation of those who
conduct the general business of the Roads.
Commissioners can only act with effect, as a deliberative body; and
their most beneficial resolutions are rendered valueless, through want
of a steady executive power. Any attempt on the part of _individual_
Commissioners to exercise this power is a still more dangerous course.
The designs of the majority may thus be impeded, or thwarted by the
subsequent interference of a single person.
All other branches of the public revenue are defended by the station and
character of the persons, under whose care they are placed. The
Legislature and the Government have wisely considered it important (with
a view to economy) to purchase talents, and station, as a protection for
every branch of the public expenditure; but in the case of the Roads
they have miscalculated the power and effect of the controlling and
directing authority. A proper comparison has not been made of the
duties, or of the effect of the exertions of a body composed of unpaid
and unresponsible individuals, like the road Commissioners, and those of
bodies composed of Boards of Commissioners, in the pay, and responsible
to the Government for the due administration of the trust reposed in
them: having also proper officers equally responsible as themselves to
act under their directions. The state of the public roads, the alarming
amount of an increasing debt, the loose and neglected state of the
accounts of the several Trusts, are the best proofs of the defects of
the system, and of its comparative inefficiency.
The returns made to Parliament by the several Trusts in the kingdom
(defective as they are) afford matter for serious reflection. England
alone, is divided into 955 little Trusts which may be considered, in
fact, as hostile to each other; while it is evident that unity of action
is of vital importance among Commissioners of the same branch of the
public service, for effecting the great object of their appointment.
While therefore each of those small communities is liable to be biassed
by individual interest or feeling, it will hardly be deemed inexpedient
to recommend some central control over the District Commissioners, that
may have the effect of regulating the eccentricity of their measures, as
well as giving their views, in many instances, a better direction. This
central control will be most beneficially established in each county,
under such regulations, and with such powers as the wisdom of Parliament
may deem most effectual.
A General Road Act must, in order to adapt itself to the exigences of
the times, embrace a comprehensive view of the subject: and effectually
remedy all the great evils which have originated in the weakness of the
system, and have been allowed to grow up, through a want of attention to
the altered state of the commerce, agriculture, manufactures, and
general interests of the kingdom. Until the Legislature shall be pleased
to enter into a serious consideration of the subject, no general and
useful amendment can take place. The great debt, (exceeding at this
moment Seven Millions,) will continue to increase, and improvement will
still be impeded by obstacles not removeable by any other power except
the authority of Parliament.
PREFACE
TO THE
SEVENTH EDITION.
In preparing another edition of the various papers on roads, which I
have published during the last six years, it may be useful to take a
slight review of the subject, and of the gradual progress of road
improvement throughout the country.
That any further information should be called for, after the numerous
additions made to the original pamphlet, (particularly the last
communication to the Board of Agriculture,) is a convincing proof of the
impossibility of conveying adequate instructions for practical purposes,
by means of the press. It is, however, of the utmost importance that the
_theory_ be fully understood, as from want of comprehending the original
nature of the system have arisen the many fruitless attempts at
imitation, which have cost such vast sums to the public.
The practical utility of some parts of the system is so obvious, that
they have been acted upon in various places, without any desire of
further improvement. It is uncommon now, to meet with roads repaired
with large stones, or of the dangerous convex form, which was the
universal custom about five years ago; but these improvements being
merely grafted on the old erroneous method, have never been attended
with the rapid diminution of expense, and the durable advantages which
immediately result from the adoption of the entire system as recommended
by me.
Those who continue to use any part of the old method of road-making, are
not, perhaps, aware of the principles upon which they are acting. I have
formerly remarked, that the old roads of the country were generally
carried along the tops of hills in search of dry or strong ground; and
it is plain that the first turnpike roads were merely attempts to open
more direct communications through the country, in continuing, by
mechanical means, the rocky paths, to which travellers were obliged to
resort. With this view, large masses of stone were first sunk into the
ground, and afterwards thick layers of broken stone strewed over them,
so as, in fact, to form an artificial rock. The insecurity of this
unskilful structure must be obvious. The rain penetrating through every
part of the surface kept it continually in a loose state, and as it was
imbedded _below_ the _ground_ water, it was constantly broken up in
winter by the frost. Hence the vast sums required for the forming new
roads, and the heavy and incessant expense of keeping them in a passable
state. Any improvements that have been made on this plan, merely relate
to the smoothness of the surface, by more carefully laying on the
stones, at, consequently, a greater expense: but the original principle
remains the same in every road, except those where the new system has
been fully adopted. Under such disadvantages, it is not surprizing that
the roads of the kingdom have not kept pace with the advancement of
every other useful art. The large sums demanded for the first outlay,
and the frequent failure of such speculations from the badness of the
roads, and the expense of their subsequent repairs, sufficiently account
for the tardy progress of road-making. From conviction of the very
insufficient and expensive nature of the method in use, I was led to
consider of the possibility of constructing lines of communication,
capable of conveying the heaviest weights over every kind of soil, and
at all seasons, upon principles purely scientific: a plan, which even in
theory differs as widely from the inartificial methods of road-making
hitherto practised, as the principle by which an arch is thrown over a
river, differs from the heap of stones which constitutes the ford.
The actual experience of seven years, the great extent of road which has
been entirely constructed according to my direction, and the
unquestionable testimony of the Committees of the House of Commons
appointed to enquire into this matter, have now placed the efficiency of
the discovery beyond a doubt. It remains with the country to consider of
the most wise and effectual mode of securing the benefit of the system.
Whoever has attentively considered the weakness and inadequacy of the
present road laws, to protect the great interest at stake, must be aware
of the urgent necessity for some new legislative measures, more adapted
to the present state of the country. The roads are, perhaps, the most
important branch of our domestic economy. The revenue collected for
their support equals that of the Post-office; and any failure in
executing the work, operates as a severe check upon our commerce,
manufactures, and agriculture. Yet a public service of such vital
importance, continues to be regulated solely by the narrow policy and
limited views of the first Turnpike Act, (which were, in fact, mere
experiments in legislation,) while this immense revenue is abandoned to
the discretion or the cupidity of the lower orders of society.
The benefit which I have aspired to render the country, is of a twofold
nature; and my labours have been as constantly directed towards the
introduction of a wise and well-regulated system of management for the
roads, as towards their mechanical construction. I have always expressed
a conviction, that no permanent improvement could take place in road
affairs, without the interference of the legislature; nor has the
success attending the efforts of my family, in various places, in any
way tended to weaken that opinion. The advantages of the new method of
making roads are so apparent, they have not failed of attracting
attention; but I have not been equally fortunate in inducing the
gentlemen of the country to observe the _means_ by which _economy_ and
improvement have been combined.
It is not only to the simplicity and cheapness of the new system, that
the great difference of expense is owing. In every place where the
system has been properly acted upon, care has been taken to place the
road business on the same respectable footing as other branches of the
public service; a complete executive department has been created. The
inferior officers, selected from the most respectable yeomanry, are
placed under the vigilant inspection of a superior, whose responsibility
secures his attention, and who is not liable to be biassed by any
influence in the duties of his office. The great success that has
attended the adoption of this plan, under all the disadvantages of the
present road laws, is an earnest of what might result from its being
established on a comprehensive scale, under the authority of Parliament.
Although no measures have yet been taken for establishing any systematic
plan for the management of roads, it is gratifying to observe the spirit
of improvement which is extending itself over the country. This is
manifest in various ways. The plan of converting the pavements of
streets into stoned roads, was introduced into the Bristol district
about six years ago; and it may reasonably be expected, that pavements
will very soon be nearly superseded by the more convenient, safe, and
economical substitute of stoned roads. Of the superior convenience of
roads, there can be no question; and all the minor objections which have
been started can be so easily obviated, that a very little reflection
will be sufficient for any candid mind. The inhabitants of towns are
generally apprehensive that roads will be less commodious for foot
passengers than pavements: but (if proper care be bestowed on cleaning
and watering) a road made of broken stone will be found more eligible
than such pavements as those of London. In some towns, where the
principal streets are turnpike roads, the commissioners have caused them
to be made of materials broken very small, which, when skilfully laid,
form a smooth, firm surface.
The great difference between the cost of a road, and even the worst
London pavement, would enable the city to bestow such care on the
cleanliness of the carriage ways, as would allow the inhabitants to
enjoy all the advantages of smooth road, with even increased comfort to
the foot passenger.
TO THE GENERAL TREASURER, THE TREASURERS OF DIVISIONS, AND THE OTHER
COMMISSIONERS FOR THE CARE OF THE TURNPIKE ROADS IN THE BRISTOL
DISTRICT, TO WHOSE FIRMNESS AND PATRIOTIC ZEAL IN THE DISCHARGE OF THEIR
DUTY, THE KINGDOM IS INDEBTED FOR THE FIRST EXAMPLE OF THE PRACTICE OF A
NEW AND EFFECTUAL SYSTEM OF IMPROVEMENT IN THE REPAIR OF THE ROADS, AND
IN THE ADMINISTRATION OF THE FUNDS UNDER THEIR CARE; =THESE REMARKS= ARE
MOST RESPECTFULLY DEDICATED, AS A TESTIMONY OF THE ESTEEM AND GRATITUDE
OF THEIR