loans made for drainage and public works, may very possibly afford a means of meeting such claims hereafter. It is, however, necessary to observe that, justice to the present proprietors of the harbour debts will probably, in most cases, preclude the Government loan being made a preferential debt. Inasmuch, however, as the subject of loans involves various important considerations, we have treated it at length, and under a distinct head, in a subsequent part of this report.

We should further recommend, that in no case should assistance, either by grant or loan, be given when funds raised by a tax upon shipping are not expended for purely shipping purposes, and that Government supervision as respects the execution of the works, and the due application of the funds to their intended purposes, should be the invariable accompaniment of Government aid. It must be evident, that a careful study of all the local circumstances, and peculiarities, in each case, would alone justify a final decision, with regard to the exact lines and the precise extent of the works to be undertaken, at the several sites which we shall recommend for the construction of harbours. Under the most favourable circumstances the requisite observations would occupy a considerable time, and would occasion an expense, justifiable only in those cases in which our recommendations shall be finally confirmed. While, however, the character and cost of the works we have decided upon are open to the revision of the engineers to whom their construction may eventually be confided, we think it well to remark, that the care with which we have gone into both these questions, has been sufficient to preclude the necessity of any material departure from our conclusions in either case. A variety of plans having been submitted to us, all more or less with the view of diminishing the expense of breakwaters, it is our intention to enter into this subject, the importance of which cannot be overrated, in a supplementary report on construction, which shall follow that which we now submit, as soon as the thorough investigation it demands shall have been completed; and we have in no case failed very carefully to consider the principles upon which they have been proposed. In that report we shall investigate the rate of progress of construction, inasmuch as it is an element which seriously affects the ultimate cost of all works of this description, and, so far as may be found expedient, should regulate the amount of the annual grants made for the purpose. In it we shall also supply plans and detailed descriptions of all the harbours we propose for construction. With these preliminary remarks, we shall now proceed to submit for your Majesty's consideration, our views in regard to the different districts within the limits of our inquiry, in the order in which they were visited by us.

EAST COAST OF SCOTLAND.

The traffic on this coast is considerable. Beside the coasting trade, and Davis Strait and Greenland fishery, there is a large foreign trade with the Baltic and the northern parts of Europe, from the west coast of Great Britain, from Ireland, Canada, and the United States. In addition to which a large traffic has lately risen up between the continental ports and the north-east coast of Scotland in the export of fish. The information within our reach has been too incomplete to admit of our forming a very accurate estimate of the number of vessels engaged in this traffic, but we believe we shall not greatly err in stating those which pass along the coast annually at 10,000, and those which proceed through the Pentland Firth at about the like number. In the configuration of the land between the

Pentland Firth and the Farn Islands is found a natural division of the coast into two districts for refuge purposes, that to the north comprising the Moray Firth, and that to the south the coast between Rattray Head and the Farn Islands. In the former, Cromarty Bay supplies an excellent life harbour, in the position which is best adapted for the purpose, but it is placed so deep in the bight, and lies so far out of the direct track of vessels, that it is practically of little use for refuge purposes to the passing trade. This view of the case being confirmed by the returns, which show an entire absence of wrecks arising from stress of weather on the Caithness coast, and comparatively few on its southern shore, we are led to the conclusion, that the wants of the passing trade, as respects a life harbour, are adequately provided for.

In addition to the trade in shipping, a very important feature on this coast is the herring fishery, which, existing along the whole of the east coast of Scotland, is by far the most extensive on the coast of Caithness, where it gathers fishermen from all the northern counties of Scotland, including the Hebrides, Orkneys, and Shetland; 1,700 boats, manned by upwards of 8,000 men, having been employed in the fishery district of Wick during the past year. In the eighty miles of coast between Cromarty and the Pentland Firth, there is not a single harbour that these boats can enter at low water, nor, if loaded, can they venture near them until halftide. Cromarty is too far distant to be of use; so that in the event of a North Sea gale there is not a harbour on the coast they can run for during twelve hours out of the twenty-four; but they are exposed to the same risk of life and of property as they were in the disastrous gale of the 8th August, 1848, when, in the short space of four hours, thirty-seven lives were lost in Wick Bay and in its immediate neighbourhood.

The British Fishery Society, an association of noblemen and gentlemen formed for the purpose of promoting the fisheries, have constructed such harbours as their means would permit, at Pulteney Town, on the south shore of the Bay of Wick, but these harbours have been found to be far too limited in extent for the great number of boats that annually congregate in this district. The society prepared a plan for the construction of a new harbour; but the Admiralty objected to the design on the ground that it would not fulfil the object intended, and would spoil the bay for any larger work which might be rendered necessary by the rapid increase in the fishery, and that of the shipping consequent on it; and, under these circumstances, the British Fishery Society at once offered to devote a portion of their funds to the construction of a more extended work.

To vessels which, having reached the entrance of the Pentland Firth, are there met by strong westerly winds, or, to those which, having made their passage through from the westward, are met by strong winds from the southward, a refuge harbour at Wick, especially during the winter, when the days are short and the weather very severe, would afford most useful shelter, and prove a great boon; and in this opinion we are confirmed by the use made of Scrabster Road, at the other entrance of the firth, for the like purposes. As it would likewise enable a large body of hardy and industrious fishermen to pursue their hazardous calling with the certainty of a life harbour under their lee in onshore gales, and therefore, in comparative safety, we cannot hesitate to recommend its immediate construction. A design for such a harbour will be shown, where the breakwaters are drawn so as to enclose the whole of the bay, as far as can be done

consistently with retaining the natural shelter of the north and south heads. With the understanding that stone, which is abundant on the spot, will be obtained free of charge, we are of opinion that the cost of such breakwaters will not exceed the sum of 250,000l. After duly considering the national and the local benefit which will accrue from the construction of the proposed harbour, we have arrived at the conclusion, that they are equal in amount, and therefore submit that a grant not exceeding half the sum above named be made in aid of its construction, on condition that an equal sum is raised for the like purpose in the locality.

The large loss of life which occurred amongst the fishermen on the south coast of the Moray Firth, in November 1857, having turned the attention of influential parties, in that neighbourhood, to the necessity of a life harbour for the fishing-boats at that point of the coast which shall be found the most conducive to the general safety of the men employed in them; and as this projected harbour, though, to a great extent, of a local character, will, in conjunction with that of Wick, render the measures taken for the protection of life in this district very complete, we recommend that assistance, by way of loan, to the extent of one half the sum required, should be granted in aid of its construction, provided it should prove to be moderate in amount, and adequate to effect the object in view.

In the district comprised between Rattray head and the Farn islands, we find to the south ample refuge afforded by the Firth of Forth; capable, however, of some improvement by way of beacons and lights, and further north, though less easy of access, by the Tay. In the former there is a large and valuable fishing trade; and the improvement of the harbour of Anstruther, on the north side of its entrance, was brought before us as a measure which would much tend to its security. The assistance requisite was stated to be a loan of 18,000l., secured on a harbour revenue of 1,2001. per annum, in order to complete a sum of 30,000l. required for the construction of the proposed works. We gladly draw attention to this case, though we did not enter into its investigation, considering it one which might more properly be met by the funds at the disposal of the Scottish Fishery Board; and we, therefore, offer no opinion as to its merits.

Between the Tay and Peterhead there is no point on the coast which would admit of the construction of a life harbour, the expense of which would not be entirely incommensurate with the comparatively small amount of casualties arising from stress of weather shown by the returns, and the position of Peterhead at one extreme of the district renders it unsuitable for the purpose. With respect to a refuge harbour, however, the case is entirely different, and the importance of Peterhead in this point of view will appear from the following considerations:-Its advanced position at the most prominent headland on the east coast of Scotland constitutes it a turning point to the greater part of the trade frequenting the Moray and Pentland Firths; it is much resorted to by wind-bound vessels, and is a favourite port of call for orders, as well as an excellent land-fall and point of departure for the passing trade; it is the principal port of the Scotch whalers, and is a considerable station for the herring fishery; it presents the most fitting point for the collection of convoys, and for a naval station for the protection of the trade on that part of the coast of Scotland. It was stated to us that a breakwater to convert the South bay of Peterhead into a moderate-sized harbour of refuge could be constructed for about 330,000l., owing to the configuration of the bay and

the abundance of granite lying close at hand; and a plan will be given, showing that which was laid before us, and one which we are disposed to consider more suitable, and certainly not more costly. Under these favourable circumstances, combined with the consideration of the natural facilities which we have detailed, we recommend the enclosure of the south bay, at a cost not exceeding 300,000l.; and considering the proportion which the shipping trading to the port will bear to those of the passing trade which will resort to it for refuge purposes, we are of opinion that the amounts of national and local benefit conferred will be fairly represented in the proportion of one-third and two-thirds respectively. We, therefore, submit that a grant of 100,000l. be made in aid of the proposed harbour, to be met by a sum of 200,000l. raised in the locality, and to be applied to the same purpose.

The recommendation we have made with respect to Peterhead precludes the possibility of our advocating the expenditure of the public funds at Fraserburgh, which is immediately in its vicinity; Fraserburgh is, however, well calculated for a refuge harbour for that limited portion of the passing trade which resorts to the Caledonian canal, and for vessels proceeding to the southward, prevented by bad weather from getting round Kinnaird Head. It will be observed that we visited Aberdeen, Dundee, Leith, Glasgow, Londonderry, Belfast, Liverpool, Bridlington, and Hull, and that we received deputations from Lossiemouth, Montrose, Arbroath, and Stonehaven. Our object in doing so was to obtain evidence relative to the general question of life and refuge harbours free from the strong partiality in their favour not unnaturally evinced at those places at which their construction had been the subject of public expectation. At many of these places we received evidence evincing in various degrees the spirit of enterprise which has prompted the expenditure of sums very large in proportion to their revenues, for the purpose of promoting the convenience of the trade by which they are frequented; and from several of them we received application for pecuniary assistance to complete improvements for which the local funds had proved insufficient, grounded on the extent of refuge which would in consequence be obtained for the passing trade. Every harbour is useful, both for life and refuge purposes, to the extent to which it possesses those capabilities which we have designated as essential, and its improvement in that direction must pro tanto be a public benefit, and must therefore constitute a claim for assistance from the public funds. But, in the cases in question, no object of this kind would be obtained at a cost in any degree commensurate with the comparatively small exigencies of the district shown by the returns of casualties. The question, therefore, resolved itself into one of local harbour improvement, into the investigation of which, being beyond our province, we did not enter, and on which therefore we offer no opinion.

NORTH AND EAST COASTS OF IRELAND.

On the north coast of Ireland the attention of the Commission was specially drawn to the Antrim Skerries, which we visited, and they were carefully surveyed under our directions. This outlying chain of islands forms almost a natural breakwater, and, by filling up either the broad or west sound, a large harbour could readily be made; nor is it surprising that many persons have been struck by the natural capabilities of the site. The existence, however, of numerous excellent harbours in the vicinity of

the Antrim Skerries, and the small amount of the casualties arising from stress of weather in the North Channel, as shown in the returns, preclude the necessity of constructing a harbour at that place, either for life or refuge purposes. We incline to the belief that, as doing so would necessitate the shutting up of the Broad Sound, it might not be in accordance with the views of the parties on the spot, who regarded with most favour the proposal to shut up the West Sound, an arrangement very much better adapted to render the harbour serviceable as a commercial port. We are unable to recommend a grant in aid of such a project, because, in our opinion, the value of the roadstead for refuge purposes would be very slightly increased by its execution; but should the parties concerned think proper to embark in this latter scheme, we submit that they should be assisted by a loan to the extent of half the sum required, provided it is moderate in amount, and adequate to its intended object.

Lough Carlingford, on the east coast, offers a spacious natural harbour in the very position that a life harbour in this district would be desirable, namely, in the track of Liverpool vessels bound through the North Channel, and of ships from the Clyde bound south through the Irish Sea. The approach, however, is rendered difficult by a flat on which there is a depth only of twelve feet at low water of spring tides. A personal inspection having satisfied us as to the value of this extensive sheet of water, and entirely concurring in the report of the Select Committee of the House of Commons as to the advantage of removing at any moderate cost the obstruction at the entrance, we have instituted a special investigation under the direction of a competent engineer, of the obstructions requisite to be removed to ensure a channel of not less than twenty-one feet deep at low water of spring tides, and 600 feet in width.

A series of borings being essentially necessary, and these operations depending entirely on the favourable conditions of smooth water and fine weather, we have not up to the present time received a report and estimate for the work; presuming, however, that a sum of 50,000l. would render this harbour accessible, at all times, to the greater part of the vessels that pass along this coast, we confidently recommend a grant to that amount, subject, however, to such revision as may arise from the report of the engineer. The attention of the Commissioners having been particularly invited to Ardglass, a few miles to the north of Carlingford, and to the Dublin Skerries, a few miles to the south, as sites for a refuge harbour, we visited both these places, though not strictly within the scope of our inquiry. Ardglass harbour is much resorted to by fishing boats during the season, and would be rendered far more useful if its pier, which now lies in ruins, were reconstructed. As a site for a national harbour, the bay is far too limited in extent, nor is any refuge here necessary within so short a distance of Lough Carlingford. The natural features of a projecting point closely adjoining the Dublin Skerries offer some facilities for forming a breakwater to enclose a bay now open to the northward, and it is possible that a harbour fit for vessels of a limited draft might be constructed here at a comparatively moderate cost; but its position, about half way between the contemplated harbour of Carlingford, about twenty miles to the north, and Kingstown, about the same distance to the south, renders such a work

unnecessary.

We regret that the limited depth of water in the harbour at Wexford, and the extreme difficulty of the engineering problem connected with the