REPORT.

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.