c >■ K I - mä^4 ^ ' fH. ^ 'i ^ ^ i •i •íík-VÍ;?'?^' •n I.•■ '.y. ■> 'l v », ri ■■.- > ^ ^ ^ r:f'¿ •^'■'^^•ii.-. •Î <%^'' V-v y <> > v 31,700 55,700 Georgian Bay, 120 40 58 390 5,200 170 462 581 +119 170 J St. Clair River, 35 1 - 70 30 - - - - - 3,800 3,830 Lake St. Clair, 19 25 29 90 410 - 21 575 +554 1 3,400 3,810 27 2 32 54 60 - - - - - 1,200 1,260 Lake Erie 250 40 58 590 10,000 70 204 573 +369 130 22,700 32,700 Niagara River, 34 1 2 70 60 - - - - 300 360 Lake Ontario 180 40 58 600 7,300 300 738 247 -491 410 21,600 28,900 St. Lawrence River, 760 20 95 - - - - - - - - - Totals, - - - 5,404 95,660 - - - - 5,508 174,800 270,460 DOCKS AND TEEMINAL FACILITIES. 33 The table shows that, without including St. Lawrence River, the lake system has a total length of shore line of 5,400 miles, a total water area of 95,700 square miles, a total land area drained of 174,800 square miles, and, therefore, a total w-atershed of 270,500 square miles. Authority says that Lake Superior is a little larger than Victo¬ ria Nyanza, and therefore tlie largest fresh-water lake in the world, even though its size is less than one-fifth of that of the Caspian Sea. The greatest maritime gateway in the world i.s at the De¬ troit Eiver, through which there passed during the year 1895 more than 50,000 vessels of all classes, having a total tonnage of more than 30,000,000. The traffic through the St. Mary's Falls Canal alone is about double the tonnage of the Suez Canal, as appears by the following table : — St. Mary's Falls and Suez Canal Traffic. [From Official Reports of Canal Officers.] St. Mart's Falls Canal. Suez Canal. 1805.* 1894. 1893. 1895. 1894. 1893. Number of vessels passed, . Tonnage, net registered, Days of navigation. 17,956 16,806,781 231 14,491 13,110,366 234 1 2,008 9,849,754 219 3,434 8,448,383 365 3,352 8,039,175 365 3,341 7,659,068 365 * 1895 figures include traffic of Oanadiau Canal at Sault Ste. Marie, which was about one-half per cent, of the whole, but largely in American vessels. The port of Chicago, generally termed a railroad centre, shipped by water during 1895 84,169,866 Í)ushels of grain and 791,620 barrels of ñour ; while the receijhs l)y the lake of coal, lumber and iron were immense. The largest flour port in the world is ButFalo, which is also the second largest grain port. Her coal shipments by lake in 1895 wei-e more than 2,500,000 tons. The cities of Cleveland, Detroit, Duluth and a number of the smaller ports upon the lakes have to-day great fleets of steamships, — some of which ai'e more than 400 feet in length, with a capacity of from 4,000 to 6,000 tons, — and are transporting merchandise at a cost which a few years ago would have been deemed ruinous. 34 DOCKS AND TERMINAL FACILITIES. Freight Rates on Wheat (^Per Bushel) by Lake from Chicago to Buffalo.* Year. Cents. Year. Cents. Year. Cents. 1857, 9.89 1870, . 5.88 1883, . 3.41 1858, .... 1871, . 7.62 1884, . 2.18 1859, 5.08 1872, . 11.46 1885, .... 2.02 1860 9.89 1873, . 7.62 1886 3.68 1861, 11.53 1874, .... 4.03 1887 4.13 1862 10.49 1875, 3.42 1888 2.56 1863, 7.51 1876 2.90 1889, 2.51 1864, .... 9.58 1877 3.72 1890, . 1.96 1865, .... 9.78 1878, 3.07 1891 2.38 1866, . 12.34 1879, . 4.74 1892 2 19 1867, . 6.67 1880, . 5.76 1893, 1.66 1868, 7.14 1881 3.44 1894 1.27 1869, .... 1882, 2.50 1895, .... 1.97 * From reports of Chicago Board of Trade and New York Produce Exchange. Freight Charges Per Ton Per Mile on Eighteen Trunk Railroads of the United States. Year. Cents. Number of Roads aver¬ aged. Year. Cents. Number of Roads aver¬ aged. Year. 1 Cents. Number of Roads aver¬ aged. 1857, . 2.789 6 1870, . 2.513 14 1883, . 1.188 17 1858, . 2.956 7 1871, . 1.924 11 1884, . 1.087 17 1859, . 2.735 8 1872, 2.101 13 1885, . 1.022 17 1860, . 2.593 9 1873, . 1.988 14 1886, . .988 17 1861, . 2.434 9 1874, . 1.869 17 1887, . .971 17 1862, . 2.687 9 1875, . 1.686 17 1888, . .924 16 1863, . 2.990 12 1876. . 1.574 18 1889, . •922 16 1864, . 4.501 12 1877, 1.505 18 1890, .884 17 1865, . 3.201 11 1878, . 1.379 18 1891, .868 17 1866, . 3.235 12 1879, . 1.244 18 1892, .799 17 1867, . 2.884 11 1880, . 1.292 17 1893, .800 17 1868, 2.741 13 1881, . 1.215 17 1894, .820 18 1869, . 2.512 •12 1882, . 1.190 17 1895, .810 18 The average cost for carrying goods on eighteen of the trunk line railroads of the country to-day is eiglit-tenths of a cent per ton per mile, Avhile the last census of the United States shows that the average cost of moving freight upon the great lakes was one-tenth of a cent j)cr ton per mile. The docks, wharves and terminal facilities at all the lake ports are under either individual or corporate ownership. By chapter 185 of the 1896 statutes of the State of New York the city of Buft'alo was authorized to appropriate for public dock purposes the park lands adjacent to Lake Erie. DOCKS AND TEEMINAL FACILITIES. 35 San Francisco. At San Francisco the docks are public, under the control of the Board of State Harbor Commissioners, first appointed in 1863. The Board is given possession and control of the water front of the city and county of San Francisco, with power to erect structures inside of a given line. The Board, with the mayor, may establish rates for dockage and wharfage, collecting from each as near as possible equal sums, of which the total shall not exceed a given amount. The Board is empowered to locate and construct wharves wherever it deems best, and to "repair and maintain all the wharves, piers, quays, landings and thoroughfares that the wants of commerce maj^ require ; and generally to erect all such im¬ provements as may be necessary for the safe landing, load¬ ing, unloading and protecting of all classes of mei'chandise passing in and out of the city and county of San Francisco by water." The Board is authorized to make all reasonable rules and reo'ulations concerning the control and management of the o o o property intrusted to it ; also in relation to the mooring and anchoring of all vessels in the harbor, and the maintaining of unobstructed passageways in the same ; and further to make needful rules and regulations governing the removal of vessels, to determine the time merchandise landed on any wharf shall remain, where it may be removed and the rate to be charged for the same, and to set apart and assign specified places for specific uses exclusively. The Board is also authorized to extend any of the streets lying along the water front of the city and county to a width not exceeding 150 feet, of which the water side half may be used as a landing-place whereon tolls may he collected. The commissionei's shall not have the right to renew any lease, ci¬ to lease any premises imtler their control for any purpose whatever, 36 DOCKS AND TERxMINAL FACILITIES. but they may permit auy property under their control to be used by any corporation, firm, association, person or company ; but in no case shall any corporation, firm, association, person or company enjoy the use of any of the property under the commissioners' charge, except such use shall be terminated as herein provided ; and the said com¬ missioners may condemn, purchase and pay a reasonable compensa¬ tion for such structures as may have been erected upon said premises, which structure, in the opinion of the Hoard and engineer, may be useful for such commercial purposes as this article is intended to pro¬ mote. No person or company shall land or remove any goods, wares or merchandise or other things upon or from any wharf, pier, quaj', lauding or thoroughfare situated upon the premises described in this article; nor shall any corporation, firm, association, company or per¬ son collect dockage, wharfage, cranage or toll within the boundaries of the premises described in this article, without first obtaining per¬ mission to do so from said commissioners. Any use permitted of the property of the commissioners may be terminated at any time by them, on thirty days' previous notice to the party or parties so using the same. Said board shall not lease to or permit auy corpora¬ tion or association or any person or persons to lay down any track or tracks for railways along any of the property described herein, or on any portion of the water front of San Francisco, under any condition whatever. Said Board may, when the wants of commei'ce require, lay down such number of tracks along and on any portion of said water front as may be necessary to meet such wauts, and permit the use thereof to any corporation or association or any per¬ son or persons, under such rules, regulations and at such compensa¬ tion as said Board may determine : provided, that no special privileges shall be awarded thereon to any corporation, association, person or persons ; and pivovided, further, tiiat switches from said railroad track or tracks may, with the permission of said Board aud under the limitations and conditions of this act, be constructed by corpora¬ tions, or any person or persons, leading to any warehouse or place of business. Under this .system, the receipds and tonnage tolls, wharf¬ age and rents in thirty year.s iiave been $12,573,000. They have risen from $117,848 in 1863, $265,70!) in 1873 and $436,030 in 1883 to $583,674 in 1893. During the same period there has been spent for construction and repairs to the wharves, sheds, bulkheads, etc., the sum of $5,021,- 000 ; also for dredging by the commissioners in the same time, $1,400,000. DOCKS AND TERMINAL FACILITIES. 37 It is interesting to note also the increase of the tonnage of vessels entering within that time, as, for instance, in the year 1867, 310,896 tons entered; in 1890, 1,030,538 tons; and in 1894, 1,100,333 tons. The Board of State Harbor Commissioners, in their bien¬ nial report ending June 30, 1892, say: — There can be no doubt of the advantages to the State at large of the past policy of the Hoard regarding the absolute ownership and control of all the water front property and the structures thereon. No person nor corporation should own any structure what¬ ever upon the State property, nor sliould such structure, when built by the State, be under the exclusive control of any person or cor¬ poration. The State of Washington. Alive to modern tendencies, the State of Washington, in her Constitution, Article XV., declares that no water areas beyond high-water marks shall be sold or relinquished by the State, "but such areas shall be forever reserved for landings, wharves and streets, and other conveniences of navigation and commerce." Subsequently a Harbor Line Commission established harbor lines in the navigable tide ivaters of the State adjacent to the cities, with a vieiv to providing for docks having a length of 600 feet and an avenue fronting thereon of from 100 to 250 feet wide. Thus the water front of all the cities in the State is to be forever preserved in uniform condition, under control of the public, in the interest of economical and convenient commer¬ cial uses, secure from the encroachment of individuals or corporations. Public Ownekship Abroad. With reference to the extent to which the public owner¬ ship and control of docks and wharves have lieen adopted in foreign ports, we will first discuss those in Great Britain and afterwards those upon the continent of Europe. 38 DOCKS AND TERMINAL FACILITIES. In Great Beitain. At London the ownership is in private corporations, undei parliamentary grants of various dates from the earliest times, and, while its dock system would be most interesting, and while as a port it represents the largest commerce of any port in the world, both in tonnage and in value, its condi¬ tions are such as to make no especial contribution to the solution of the problems under investigation. Southampton. At Southampton is found a remarkably fine and commo¬ dious harbor, with a sj'stem of docks ample for any demand, and also arrangements for economical and speedy handling of passengers and freight equal to any in the world. The Harbor Board, which has existed for over ninety 3'ears, con¬ trols the town qua}' and roval pier, and does the dredging, lighting, buoving, etc., of the harbor. Its debt for these o o ' ~ ' improvements now amounts to about $1,000,000. The Lon¬ don & Southwestern Railway Company maintains a magnifi¬ cent system of costly docks and terminals, including a dry dock 750 feet long, with a depth on the sill of 29 feet 6 inches. Passengers landing there are ivithin two hours of London b}' rail, and no less than twenty dift'erent steam¬ ship companies include this ])ort in their regular sailings to eveiy part of the world. The policy underljdng this development is squarely stated by IMr. John Dixon, dock and marine superintendent of the London & Southwestern Railway Compain-, in a paper read by him before the Institution of Naval Arcliitects in Jul}', 1896, in wliich he says : — We can give, and arc ¡¡roviding here, in Sonthampton, facilities for vessels of any size and of almost any conceivable dranglit. . . . Time was when ships wliich were coniparativolv inexpensive had to be built to suit the ports which were comparatively costly. Now the DOCKS AND TEEMINAL FACILITIES. 39 situation is revei'sed, and ports, if their owners desire to attract and secure, or even to hold, trade, must be built or adapted to suit the ships, not only of the present but of the future. This, as I interpret it, is the policy of the Southampton Harbor Board and of the London & Southwestern Railway Company, — a policy which the commission¬ ers and directors are pursuing, in the firm belief that it will meet with its due reward at the hands of the great travelling public, and of tiiose who control the various branches of tlie carrying trade of the world. The ])roportion of steamers to all over-sea tonnage enter¬ ing Southampton in 1893 was 96.51 per cent. ; at Glasgow it was 93.74 per cent. ; at the Tyne Ports, 90.14 per cent. ; at Liverpool, 88.06 per cent. ; at all ports in the United King¬ dom it was 85.28 per cent. Hull. The port of Hull, on the river Ilumher, is an interesting study, as showing how completely a community may be placed at the mercy of a railroad corporation, and be made to sufler in order to reward the cupidity of private interests. The original town docks wore allowed to be supplanted by a dock company. The North-eastern Railway Company, getting control of the dock company, caused such high charges to he made for wharfage and carriage as to lead to the construction under an act of Parliament of the Hull & Barnsley Railroad and the Alexandra dock. Then came ruinously low charges, with a vdew to forcing the new com- ])any into insolvency, followed by an application to Parlia¬ ment for leave to absorb it. In this brief history is shown the evil in England of allowing the docks to he controlled by private interests.* The only places in Great Britain where the municipalities own the docks are at Bristol, at Boston in Lincolnshire, at Preston in Lancashire, and at Manchester. * See for more ]>articular information consul's report, and letter from a leading mer¬ chant of Hull, in Appendix, page 226. 40 D(OCKS AND TEEMINAL FACILITIES. Beistol. Bristol, until quite recently, was the only port in the United Kingdom owned hy a municipality. Its business is largely importing. It has facilities for distrilmtion by three of the great systems of railways, and by canal northward to Birming¬ ham and eastward as far as London ; in addition to which it has a vast fleet of coastwise vessels, connecting it with all the principal ports of England, Ireland and Scotland. It main¬ tains ample dock accommodation for a large commerce, and claims to aflbrd as good facilities to traders as can be found elsewhere in Great Britain, with speedy service at nearly cost price. The total capital invested in the Bristol dock estate amounts to about ten and a half million dollars. The affairs of the dock estate are managed by a committee of nineteen members of the town council, a})pointed annually, and by an extremely com})etent, experienced and cultivated secretary and gene¬ ral manager, whose information must be as invalual)le as his administi'ation is complete. His opinion, formed upon such information concerning the conditions at Boston as the visit¬ ing committee of this Board imparted to him, Avas strongly in favor of the adoption here of a syslcni of pulilic ownership of docks and wharves.* Boston. At Boston a dock aaois l)uilt at considerable cost to accom¬ modate Avater carriage to London, to induce the lowering of railway freight chai'ges. In this oliject it Avas quite success¬ ful ; and it also brought about the a.dditional and unexpected benefit of l)uilding up the flshcries interesfs, so tliat now the annual tax on the pco])le for its support is ra])idly diniinisliing. It is generally thought by the leading merchants at Boston that the incidental benefits more than offset the direct charges. * For further information as to lîristol reference is nnnlo to tlie Appendix, p. 177. DOCKS AND TERIMINAL FACILITIES. 41 pitkston. Preston is a town in Lancasliire on the river Eiblilc, with 107,000 inhal)itants. The citizens, feeling- aggrieved at the high rates charged for railroad service, and unable to obtain a reduction thereof, concluded that they would have water coniinunication, and thereby obtain competition with the railroads. Accordingly they procured an act of Parliament, excavated a dock' 40 acres in area, and deepened and widened the river, at a cost of over $5,000,000 ; and, while it is claimed that the investment is as yet not earning interest, it is believed by the inhabitants that the iiulirect benefits of lessening the expense of transporting bulky materials and the cost of the necessities of life have been sufficiently remunerative to the community to warrant the increase in the rate of taxa¬ tion. A lowering of the railroad tarilfs has l)een the result of this public enterpi-ise. Manchester. Manchester, until quite recently, was dependent upon Liverpool for its port facilities. It is connected hj^ several railroads, over which almost all the business between the two places was done. The people of Manchester, in 1882, dissatisfied with the rates they were ol)liged to pay for the commodities of life and for use in their great manufactories, determined to provide a waterway which should make Manchester an independent port of shipment and discharge, and thus free themselves from the tribute they were oldiged to pay to Liverpool. Obtaining an act of Parliament, they organized the Manchester Ship Canal Company, and have built a canal 35J miles long, from Manchester to Eastham, where it ter¬ minates in tlie Mersey 6 miles above Liverpool. The canal has a bottom width of 120 feet at a full depth 42 DOCKS AND TEEM IN AL FACILITIES. of 2(5 feet, and it is claimed that this affords a waterway for ocean steamships of 5,000 tons. At the IManchester end there are ample docks, equipi)ed with transit sheds, hydraulic and steam cranes and other appliances for giving quick despatch in loading and discharging. They are con¬ nected directly with all the railway systems of the country, and are also in direct communication with the barge canals of the district ; and the company receives stores and distrib¬ utes all descriptions of traffic. The cost of this enter])rise thus far has reached the enor¬ mous sum of $75,000,000, and that is more than double the original estimates. As the undertaking progressed, the city of Manchester came forward with assistance, and enabled the company to complete its work. So soon as the canal was opened for traffic, the people of Manchester began to realize the bene¬ ficial effect of the undertaking in the reduction of the cost of many of the articles of consumption, and in the lowering of com})eting railroad rates ; and it is claimed that the direct benefit to the district during the two and a half years of working bj' reason of the reduction in railway rates and port charges has been not less than $10,000,000. In the first seven months of l\harf and dock owners in Boston long realized the unde- sirablencss of a lack of uniformity in charges, and back in the sixties, as the commerce of the port was diminishing, agreed on a table of rates. It is not used to-day, however, and wharf and warehouse charges all depend upon the passing demand or necessity of the user. A charge for landing a cargo is not the same at all suitable wharves, and therefore cannot be reckoned in the estimate of an importing merchant. It need not be argued that accommodation which might be reckoned on at a fixed rate for a given length of time at any season of the year would encourage, and the opposite conditions would discourage, business. It is not easy to see where, or to say how, the business of the jtort would sufler from the adoption of ))ublic ownership of docks under such limitations as we shall recommend. On the contrary, such experience as the history of other ports affords gives every assurance of benefit and advantage to this poi*t from such a change as is proposed. The existence of harbor lines and a Board of Commissioners for a quarter of a century, the first natural step toward public ownership and control, has operated beneficially. All new structures and the replacing of old ones in tide waters are under their jurisdiction, and must bo licensed to be lawful. The ownership and occupancy of the wharves are at present 80 DOCKS AXD TERMIXAL FACILITIES. quite diversified. The railroads own lar¡;e frontales, and "ive ~ CT' " ' O iree dockage to steamships bringing them freight or taking it from them. ^Vnd this is bj' far the larger volume of busi¬ ness of the })ort. It is well known that grain is hauled hero from the west b^' railroads on a small margin of proht, and that any interference with the present freedom of action might seriously impair, if it did not wholly destroy, that business. Such a result of itself alone could not be considered with inditierence ; but, with a diminution of steamship arrivals, the opportunity which our merchants now enjoy of importing at low treights would be liable to be lost. Because of these and other considerations it is undesirable to disturb the nature of the ownership of railroad wharf property in the })hins to be submitted. Twenty-two years ago the Harbor Commissioners recom¬ mended the filling of the Commonwealth's South Boston flats, so called. This was a natural sequence to the recommendation for building a wall on the site of the present north-eastern bulkhead of the flats, in order to direct the course of harbor currents. The tilling has been going on for years, and a large and valuable property, with ample water front, is the result. The north-eastern corner of this property was purchased by the Xew York & Xew England Railroad Company, but for financial reasons it has hitherto failed to meet expectations in the Avay of development. It is now in stronger hands, having passed into the control of the XYw York, X^ew Haven & Hart^ ford Railroad Company. About 9,150 feet of the frontage to the Reserved Channel continues, however, as the prop- ertj^ of the Commonwealth. It is contiguous to this rail¬ road system, and can readily be connected with it b}' rails. It is submitted that no better place than this territory af¬ fords could be found wherein to try the first experiment of a public dock. If there should arise a demand for its ex¬ clusive use, it might be leased for a term of years, and another built alongside of it, and so on, until the water front on these flats shall be occupied. DOCKS AND TEICAÍINAL FACILITIES. 81 For reasons heretofore given, it would be unwise tor the Commonwealth to sell the fee of this water front ; for, by retaining control of the reversion at the end of the leased O period, it reserves the power of preventing misuse or abuse from any source. The ownership of the water front (the line between the land and water), the natural barrier to trade and commerce, should ever remain under the control of the people, and should never be parted with for more than a comparatively short term of years. This is the demonstration of all experience. Freedom from unwise re¬ strictions and the power to reduce tolls for docking and landing should always be assured to the people in order that their will may be able to be operative whenever the public welfare demands its assertion. In these days, when individuals are dwarfed by gigan¬ tic combinations and syndicates, by corporations and trusts ; when great cities, like Liverpool and Southampton!, Ilotter- dam and Hamburg, compete in rivalry for commerce ; when the Atlantic seaboard cities of our own country exert every effort of civic influence to direct the course of trade, each in its own interest, — it would be an abnegation of oppor¬ tunity to remain idle, expecting individual enterprise to overcome all the obstacles in the way of creating a great commerce, and of enabling the natural advantages of this port successfully to vie with its rivals. It "is obvious that individual enterprise cannot be relied on to take such a risk. The alternative then presented would be a combina¬ tion of individuals, — a syndicate, a trust. This possibility can hardly be deemed remote in the light of present com¬ binations prevailing throughout the country. The question tiien becomes narrowed to a preference between a trust, or monopoly of the harbor, to which all commerce would have to pay tribute, or public ownership as herein liinited. With an improved harbor, and with her lines of railroad stretching to the tar west, tor which she is a natural gateway to the ocean, Boston should look forward to a great future. 82 DOCKS AND TEKMINAL FACILITIES. The great cities of the north-west have just begun to grow. Our trade regulations should grow as they grow : and, tied to them by rails of steel, Boston should be their port. The past fifty years has trebled the population of the United States, has developed Canada, has opened up South America, Aus¬ tralia, New Zealand, South Africa and parts of India. Developments such as these quicken a realization of tlie importance of looking ahead and preserving for future use opportunities like the present of securing and dedicating to })ul)lic ownership and control an availal)le portion of the water front. We accordingly recommend the acquisition by the Common¬ wealth of a limited area of unimproved water front within the harbor lines, upon the location and in the manner hereinafter set forth. III. "if Public Ownership of a System of Docks and Wharves in Boston is advisable, in what Manner can the Neces¬ sary Water Front best be acquired and improved and used so as to practically inaugurate such a System? What will be the Probable Cost of such an Undertak¬ ing? In what Way can the Needed Money best be obtained? How should it be expended, and who and what Authority or Agency should have Charge of the Construction of New Docks, and the Maintenance of the System when in Operation? Is it advisable to restore to the Commonwealth the Ownership and Control of all or any of the Flats in Boston Harbor not now owned by the City of Boston?" AVIIAT ACQU'SITIOA SHALL 15 K 31 AHE, AXH now SHALL IT BE I 31 PB O YE I) AX H L S E D ? Having already decided not to invade the ownership of im¬ proved wharf property, we find a considerable tract of water front and flats lying adjacent to East Boston and Winthrop, and another considerable tract between Old Harbor and Ne- DOCKS AND TERMINAL FACILITIES. 83 ponset River, both of which iire at present unimproved. It is unsatisfactory to attempt to forecast the wants of the future ; but it is generally believed that a large expansion of commerce in grain, cattle and packed meat goods will come through the railroads having their shipping terminals on the north side of the harbor, and that accordingly it would be well to acquire and preserve a strip of foreshore at East Boston sufficient to guarantee the public against any possible dedication or use antagonistic to the growth of ocean com¬ merce. The reasons for selecting the other tract will be referred to later. As to the manner of acquisition of such water front as may be authorized, it is enough to say that there has existed in this Commonwealth from time immemorial provision for taking land for public purposes, which provision gives an appeal to a jury to any one dissatisfied with the damages awarded for the taking ; and we know of no suggestions to improve that method, and therefore recommend its adoption in this instance. As to the manner of improvement and use of such land as may be acquired, we believe that no immediate action need be taken. The Commonwealth, as we have hereinbefore indi¬ cated, has already a large tract of land known as the Com¬ monwealth's fiats at South Boston, conveniently located with a fine frontage on the harbor line. They are contiguous to the New England Railroad, and also can be easily connected with the Union Freight Railroad at Atlantic Avenue by a bridge across Fort Point Channel at the foot of Oliver Street, where the city now owns a wharf taken for that purpose. No better use could be made of this property than the one long contenq)lated, and we therefore recommend that a model pier and dock, with every modern appliance needed for the economical and speedy handling of cargoes at this port, be forthwith built on the Commonwealth's flats at South Boston, with a view to meeting the demand for such additional accom- «4 DOCKS AND TERMINAL FACILITIES. luodation ; and that, when buiJt, the same, if wanted for ex¬ clusive ixse, 1)0 leased for a term of not exceeding tifteen years ; and when so leased, or fully occupied, another such dock bo built, answering to the roijuirements of the then period, — and so on, as long as the demand shall continue. And if, mean¬ while, a demand for a wharf or other improvement in the East Boston tract or in the Dorchester Bay tract shall arise, for foreign or domestic purposes, that then such imj)rovement as may be wanted shall be made. In this way, it is belie) cd, the advantages of public owner¬ ship as elsewhere demonstrated may be accpiired and retained at this port, for the benetít of the [U'esent generation and posterity, at a minimum cost. "Is IT Advisable to eestore to the Com- MOXWEALTII THE OWA'EKSIIIB AND Cox- tkoij of All or Ax^y of the Flats IX' Bostox' Harbor x'ot x^ow owx'ed BY THE City of Bostox'?" For reasons hereinbefore stated we believe that a control¬ ling quantity of the foreshore or water front should be perma¬ nently held by the Commonwealth. The foreign commerce of the port is growing, and the loca¬ tion of wharves and docks ought to l)e as near as possible to its base of supplies,—to wit, the railroads. The Com¬ monwealth's South Boston flats and Dorchester Bay are a sutlicient provision for the south side of the harbor. On the north side the accommodation is altogether inadequate, and any discussion of the enlargement of the area to be adapted to the wants of commerce would be im])erfect slu)uld it fail to consider the needs of a century in advance of the present time. A glance at the map discloses a channel on the north side of Governor's Island, of ample de})th through most of its course, from Broad Sound to a point opposite Bird Island DOCKS AND TERMINAL FACILITIES. 85 fliits. The utilization of this channel in contemplating any project for future development should not be left out of view. With but a slight amount of dredging it would fur¬ nish an adequate channel for a very considerable commerce seeking berths on the proposed East Boston trout north of Jetl'ries Point. AVhile it is impossible to foretell within what time the ex¬ pansion of Boston's commerce may need to occupy the terri¬ tory covered by this project, we are satisfied that it would be wise for the Commonwealth to reclaim the ownership in a strip of the flats, not owned by the city of Boston, fifteen hundred feet wide, lying westerly and bordering on the Pier¬ head line, from a point beginning where said line makes an angle in the line of Sumner Street extended easterly and about eight hundred feet from the present abutment of said street, and thence following the Pier-head line around to its northerly termination on Breed's Island, excluding the flats of the city of Boston covered by said strip. The proposed width will give ample accommodation for piers and docks, and at the same time leave in the rear of and abutting on the same a strip of territory sufficient for the purposes re¬ quired, as incident or accessory to the use to which the premises are to be devoted. This belt we deem to be a suffi¬ cient reclamation, for some time to come, of the foreshore on the north side of the harbor. There are other flats on the south side appurtenant to Cow Pasture, Savin Hill, Commercial Point and beyond — that is, the flats lying between the southerly end of the Strandway as at present located and of the city at Neponset River—to be considered. Realizing that this territory is the foreshore of a district destined to be at no very distant day thickly settled by a dense population, it ought not to be a matter of indillerence as to whether that shore is preserved so that it may be accessible to the wants of the next generation at reasonable cost. By its 86 DOCKS AND TEEMINAL FACILITIES. investigations and studies this Board has been greatly impressed with the value of waterways suihcient to carry the cumbrous merchandise in the shape of brick, lime, cement, lumber, coal and raw material for manufacturing purposes as near as pos¬ sible to the places where the\' are to be used. Not only is the carriage in itself by water cheaper than in any other way, but the streets are relieved from a crowding incident frequently to the carding of materials, as well as from the wear and tear and necessary cost of repair caused by drawing loads of these heavy materials over their surface. It is therefore recommended that the Harbor and Land Com¬ mission have authority to condemn and take any portions, or all, as may to the Board seem best, of the flats lying between the bulkhead line and the Pier-head line, established by the United States Harbor Line Board of 1888, and approved Feb. 13, 1890, together with a strip of land adjacent to, and only where adjacent to, the flats taken as aforesaid between said bulkhead line and said Pier-head line. Said strip to be so limited in width that at no point at which a line may be drawn at a right angle to the Pier-head line shall the space reserved between the two harbor lines aforesaid and the strip so taken, when added together, be more than seven hundred feet wide. The object to be gained is not only owning dock frontage, but a street or way of ample width for jiossible use at the head thereof. It is estimated that the number of feet of flats and marsh so authorized to be taken will not exceed 20,000,000, as improved properties have been omitted from the estimate. All takings should be made within two years of the pas¬ sage of the act authorizing the taking, and be subject to the approval of the governor and council. "AVIIAT WILT, HE THE PliOlîATîEE CoST?" The ' immediate expenditures in carrying out the recom¬ mendations herein made would not be large, nor would they at an}' time be considered great, as measured by the advan- DOCKS AND TERMINAL FACILITIES. 87 tíigcs to bo obtained if made in the conservative and guarded way proposed. Flats. The purchase of the strips of flats on the East Boston and Dorchester Bay shores, taking in not over 20,000,000 feet, ought not to exceed one-half to three-quartei's of a million dollars. Dock. The building of a model dock ought not to exceed half a million dollars. Thus, with an expenditure of less than a million and a half dollars, certain invaluable results can be accomplished. If the project pi'oceeds no further, the benefits will be permanent, and will be worth what they may have cost, and further de¬ velopment may be arrested witiiout materially, if at all, affect¬ ing the value of the previous outlays. "Ix tviiAT AVay cax the Xeebed Money ]i Ji s T 15 E < ) 15A I N ]•; D ? " In the same way that an individual who wished to develop his ju'operty might seek to obtain it, and that is, by borrow¬ ing money needed for the development on the security of the proporty. —For impi-oving the Commonwealth's South Boston flats as heretofore outlined. The cost of this improvement is estimated to be not over $.500,000, which should be paid out of the Commonwealth flats improvement fund, — a fund already established, and represented by 170 acres of filled land, lying on either side of Congress Street or new Summer Street. Second. — For procuring the strip of East Boston flats. Let the money therefor be borrowed by the Commonwealth on long-time, low-rate, sinking-fund bonds, iind let any money dcsii'cd for developing the same !)e raised m the same way, and 88 DOCKS AND TER:\IINAL FACILITIES. let the rentals be based proportionally on a sum sufEciont to pay the interest, annual charges and a sinking fund relative to the portion leased. Third. — For pi-ocuring the Dorchester Bay flats. Let the money be borrowed by the Commonwealth, and provision for l)ayment be made in the same manner as provided for the East Boston flats. llow STlOlTLD TIIK ÍNIoXEY BK EXPEXDEdV "AVuO AXI) WHAT Aetiiobity on Agexoy should have Chaikjk oe THE CoXSTKECTlOX OE A E W DoCKS AX^D THE MAIXTEXAXCE OE THE SYS¬ TEM WHEX^ IX Ol'EIiATIOX'? " The expenditure of money incurred by this project should be made on the recommendation of the authority or agency having charge of the construction and maintenance of the docks and wharves, to be approved by the governor and council, and be paid by the treasurer of the Commonwealth. The two forms of authority or agency most considered by your commission have been the harbor trust, or English form, which enjoys the confldence of the English people and seems to work well under their conditions, and the American form of a boai'd of commissioners. The harbor trust is a well-balanced board, which aims to represent all the diflerent interests, and is for their pur¬ poses practicalB', as well as theoretically, quite peiTcct. It is, however, better adapted to English ideas and habits, and, although partially adopted at some ports on the con¬ tinent of Europe, has never been tried in the United States. To us it has the objection of being unfamiliar and untried, as well as more cumbersome. For these, among other rea¬ sons, it becomes a question whether, though otherwise desir¬ able, it would commend itself for adoption here. DOCKS AND TERMINAL FACILITIES. 89 A board or commission is a usual depositary oí delegated power in this Commonwealth, and in other States. It is one to which wo are accustomed. It has existed for many years, has been serviceable to the public and substantially free, from scandal. It is conservative, and yet kept in touch with growing wants and changing requirements by its accessibility to the public and the short term of ap¬ pointment of its members. It is natural, therefore, to regard a commission as the most trustworthy and best understood agenc}' to receive this new trust. Whether an entirely new commission, with its attendant expense, is nec¬ essary to carry out this project, or whether such a duty may not be engrafted on an existing board, are questions to be considered. The objection to creating another commission to accomplish work the nature of which is quite in line with that alreatly performed by an established commission is obvious. The subordinate duties involved in such a work can be systema¬ tized, classitied and carried on by skilled and qualified agents to an indefinite extent. The more completely corelated sub¬ jects can be brought under one head, the more stable and con¬ sistent will be the policy and the more uninterrupted and economical the work incident thereto. The evils of divided jurisdiction are too well known to require argument. The Board of Harbor and Land Commissioners already have jurisdiction over tide waters and harbors, as well as over great ponds and the Connecticut River. They have in charge the improvement of the Commonwealth South Boston fiats, upon which the building of docks has for some time heen contemplated. That Board also is the one best fitted by virtue of the maps, plans and information gained in connection with the general work of its office, to deal with the questions which ai'e likely to arise in carrying on the proposed works. The office of the Board is, moreover, at all times easily acces¬ sible to the public for the purpose of lodging complaints, or 90 DOCKS AND TERMINAL FACILITIES. iiivitiiig consideration to any changes in rules and regulations which business interests may require. For these and other cogent reasons this Board, after the most careful consideration, is of the opinion that the most economical, efiective and satis¬ factory body to perform the functions herein suggested is the Ilarhor and Land Commission. lY. "What Changes are necessary in regard to Railroad Termi¬ nal Facilities, and Connections with said Docks and Wharves? Does the Public Necessity and Convenience in Connection therewith require the Abolition of any Grade-crossings of Highways or Railroads; and if so, how can the Same be accomplished?" Such changes are necessaiy as will provide the public wharves and docks, whenever the same shall be built, with easy and convenient connection with all the railroads now centring in Boston. Any public docks built on the South Boston flats ma\- be directly connected with the New Eng¬ land Railroad at a very slight cost ; and they may be also connected with the Boston & All)any tracks in several ways. The situation at East Boston requires a connection between the proposed strip of foreshore bordering on the Pier-head line, heretofore described, and the Boston & Albany and the Boston & Maine railroads, and through their connections with all the other railroads. In order to accomplish these objects most conveniently and advantageously for the public, a few comparatively inexpensive changes and additions are desiraljlc. The projected wharves on the Commonwealth's flats would lie contiguous to the New England Railroad tracks. The removal of the freight terminals of the New York, New Haven & Hartford Railroad across Fort Point Channel, already accomplished, makes unnecessary the continuance of the tracks of their Union Freight Railroad be- DOCKS AND TERMINAL FACILITIES. 91 yond the nearest l)ridge connection with their South Boston terminals for the distribution of freight. It would be to the advantage of the public if all freight reípiiring transj)ortation across Fort Point Channel in cars and deliverance on the line of the Union Freight Railroad should avoid passing the southern union passenger station, thus diminishing the congestion of that district. This can readily be accomplished bj^ building the long-talked-of bridge across Fort Point Channel at the foot of Oliver Street, where the city, several years ago, bought a wharf for that purpose, and by laying tracks across the same ; thus making short con¬ nection with the new freight terminals of the Consolidated Railroad, and also with the projected public docks just be¬ yond. A connection with the Boston & Albany Railroad would be made through the present connection of that rail¬ road with the New York, New Haven & Hartford as it now exists. If the trafHc should at any time demand it, another bridge across Fort Point Channel, near the Broad¬ way extension bridge, or a tunnel under it, might be built. Thence the connection will continue over the tracks of the Boston & Albany Railroad, by means of its grand junction division, until the northeim railroads are reached. Should necessity require the removal of a portion of the Grand Junction Railroad through the southerly part of Cambridge, then a connection between the Boston & Albaii}^ and the Watertown branch of the Fitchburg Railroad might be effected at a comparatively slight cost by crossing the river Charles at or near the United States arsenal at Watertown. There was presented to the Board a plan for connecting all the railroads by a circuit road some twenty-five miles in length, which would most conveniently tap all the main lines a" few miles outside the city ; but after careful consideration it Avas found that the cost of the line and its maintenance would add so much to the charges for terminal delivery beyond those required by the present system of operation of the railroads, 92 DOCKS .VXD TERMINAL FACILITIES. or by the iidoptiou of the car-float uicthod, that thi.s project was deemed impractical )lc. A comiectibii may easily be made between tiie proposed i)ub- lic wharves and all the other water-front terminals by a system of car floats such as is now in use in this harbor and in other competitive ports. This method is largely pursued in New lork, where more than 1,000,000 tons of freight are handled yearl}- at single dock terminals,—as at Palmer's docks in Brookljm and at the lake ports. At IManitowoc on Lake jMichigan a train of thirty-six cars is transported across the lake on a single steam float. The foregoing plans for connections will be found discussed in detail in the report hereto appended, made to the commis¬ sion by the engineer, INIr. Thomas Doane.* In view of the fact that the growth of commerce at this port has been largely in consequence of the arrangements made Ijctween the railroads and steamship lines, whereby each rail¬ road undertakes to give preference to its own particular line of steamsliips in forwarding ocean freight, such plans as are herein suggested are intended to interfere as little as may be with existing conditions. The recommendations made by j'our commission have in view the placing of the premises on which })ul)lic docks may be ))uilt within easy communication with all the railroad systems that centre at this port. As to the situation at East Boston with reference to the abolition of grade crossings and other changes necessary to be made, your commissioners had hoped that under the pro¬ visions of chapter 4ÍII, Statutes of 1.SP5, a solution would have been reached which would obviate the necessity of re¬ porting any original plans. The subject of the abolition of guide crossings at East Boston is one which has occupied the attention of the city authorities and the railroads for a long time, and from time to time various projects have been submitted and considered. Your commissioners recently were * See Appendix, page 133. DOCKS AND TERMINAL FACILITIES. 93 invited to a conference between the city antli(jrities and the railroads, at which a plan prepared by tiie city engineer was presented and discussed ; but, while the proposed plan was calculated to accomplish the desired end, the parties inter¬ ested objected that the cost of the scheme was almost too great to be entertained, —the lowest estimate being $1,600,000. A considerable portion of that cost was for the purpose of ob¬ taining the land on the northerly side of jMarginal Street from Orleans Street to the Revere Beach ferry, and the building of new tunnels under Sumner and M^ebster streets. There is no question that in the interest of economy the work of delivering and receiving steamship cargoes from rail carriage and street conveyance must be done on a common grade. It is at the same time only reasonable, notwith¬ standing the passage of the grade crossing acts, that rail¬ roads, when permitted to lay tracks in or across streets, with the object of making wharf connections, should have a right to expect freedom from the necessity of raising those tracks, or the street itself, in order to continue the service. Never¬ theless, the propriety' of abandoning a street to unrestricted railroad traffic would in most cases be questionable. These united considerations make it a matter of much moment to determine if some plan may not be devised and adopted whereby encroachments on the public streets may be reduced to a minimum, without, at the same time, doing any injustice to private or corporate interests. In view of the recommendation hereinbefore made, that the public should own a strip of foreshore on the harbor line on the east side of East Boston, and of the desirableness of handy railroad connections therewith in the future, if not to-day, the problem of relocating the railroad tracks in East Boston becomes of exceptional importance. Inasmuch as the parties interested may reach an arrangement under Statutes of 1895, chapter 491, satisfactory to them all, without the necessity oí any additional legislation, your commissioners 94 DOCKS AND TERMINAL FACILITIES. will refrain at present from making any recommendations in the shape of a bill, bvit will be content to report an outline of a plan broadly, Arhich, if it were car¬ ried out, Avould be a great improvement on the present situation. The changes we would suggest at East Boston involve certain relocations of the railroads, the abandonment by the Boston, Revere Beach & Lynn Railroad of its terminals Avhere now located, and the substitution of another ferry, for which additional legislation would probably be required. The Boston, Revere Beach & Lynn Railroad is a short sub¬ urban, narrow-gauge road, with a number of grade crossings, in East Boston, Winthrop and Revere ; and, following the ex¬ ample of many similar roads in various parts of the country, it not unlikely may soon be equipped as an electric railway. In that case it should abandon its location from a point near the junction of Bennington and Trumbull streets in East Bos¬ ton to its ferry landing on the East Boston side, and be given a location as an electric street railway, say through Benning¬ ton and Chelsea streets, thence through Maverick Square and LeAvis Street, to the south ferry landing. Or if, as has been suggested, the present location of the Boston & Maine and Boston & Albany railroads, from the junction of Ben¬ nington Street south, were abandoned, and the city should acquire that property and lay it out as a boulevard through East Boston, a location could be given there, instead of the one proposed. The city of Boston, under a recent act of the Legislature, Statute 1895, chapter 435, has now authority to establish a new ferry landing at or near Rowe's wharf on the Boston side. If the present fendes and landings of the Revere Beach Company Avere abandoned, nevertheless a passenger boat miwht be run from the foot of Lewis Street in East o Boston to the present landing of the Revere Beach ferry on the Boston side, whereby the jjassengers OA'er the Boston, DOCKS AND TERMINAL FACILITIES. 95 Revere Beach & Lynn Railroad, as well as all citizens of East Boston who might desire to be landed at that point, would receive the desired accommodation at a one-cent in¬ stead of a three-cent fare, as at present. The Boston & Albany and the Boston & Maine railroads are at present located in the centre of the island, creating a barrier to the growth and development of the commnnity, as well as being a constant menace to life and limb. It is believed that a relocation of the tracks of these railroads would be a more desirable solution of the problem than could be effected by any attempt to abolish the grade crossings over the present loca¬ tion. If they were to be removed to the location now occu- })ied by the Boston, Revere Beach & Lynn Railroad, on the easterly side of the island, they would be within easy access to the shore front proposed to be dedicated to the system of pub¬ lic docks ; where they could never interfere with the increase of dwellings ; and would be in the heart of any expansion of industries whose interest it would be to keep them in undisturbed possession. They should be deflected from their present location near Curtis Street, and a new location be given them leading under Pope, Saratoga and Bennington streets, the grades of those streets being raised at necessary points ; thence over a street laid out as Harmony Street to the location of the Revere Beach Railroad ; thence along said location through the present tun¬ nels of that road, — raising Maverick and Everett streets over the tracks, — across Marginal Street, and entering the prop¬ erty of the Boston & Albany Railroad near its easterly end. The Boston & Maine Railroad should be permitted to acquire from the Boston & Albany a strip of land bordering on the south side of Marginal Street seventy-five feet wide from a point where the tracks should enter their property to Clyde Street, there making a connection with their present property southerly of Marginal Street. In compensation for this loss of territory the Boston & Albany Railroad should be allowed 96 DOCKS AND TERMINAL FACILITIES. to acquire the propert}' southerly of INIaruinal Street and east¬ erly of their present boundary, now belonging to the Boston, Revere Beach & Lynn Railroad, which property, under the general plan proposed, would have been acquired by the city of Boston, and would be for sale. Ample car-storage yards could be acquired upon lands on both sides of the new location north of Maverick Street, much nearer to the wharf terminals of the railroads than those now used by them. Y. "Has Business been diverted from Boston, or from any other Portion of the Commonwealth, by Discrimina¬ tion in the Matter of Freight or Wharfage Charges, or for any Other Reason ; and if so, how can the Present Conditions be remedied?" On this question the testimony of merchants, railroad managers, steamship agents and others has been received by the commission, and a study of the conditions and business of other American ports as well as Boston has been made. There have been many causes concurring during the past twenty to thirty years to divert business from Boston. Among them has l)een the instability or uncertainty of wharf charges. It has never been the custom to charge dockage or berthage to vessels with cargoes at this port, but to put the entire charge on goods landed on the wharf. This variation from the custom prevailing at most of the other com})eting })orts has caused a charge to appear against merchandise delivered hero which did ]\ot appear to shippers elsewhere, where such charge is absorbed in the freight and paid by the vessels. This evil has been enhanced by the uncertainty of the charge, which was made less when busi¬ ness was dull and increased when the demand for wharf ac¬ commodation was active,—-varying as widely as from ten to forty cents a ton. This element of uncertainty has un- DOCKS AND TERMINAL FACILITIES. 97 doubtedly worked badly for the port, and has led merchants to do business at other idaces, where charges could be reck¬ oned and discounted. As at New York, for instance, the system of pier charges, and the free delivery from the rail¬ roads to vessels and storage warehouses by means of lighters and car-floats, have constituted an advantage which has con¬ tributed to draw commerce thither. In round tigures there are received and delivered by water at the port of Boston 8,000,000 tons of freight. A very careful analysis has been made, to see what proportion of the same pays a wharfage charge. The coal receipts here amounted in 1895 to 3,517,000 tons, — of which about 2,000,000 tons were landed upon the railroad wharves for their own use or for transportation over their lines, and upon this, with the exception of a small quantity, no wharfage charge was made. The balance, about 1,500,000 tons, was landed upon wharves of dealers or at the plants of the consumers. The annual receipts of merchandise by regular foreign steamship lines are about 500,000 tons, of which GO per cent, or thereabouts is delivered to the local merchants, whereon a varying wharfage charge is paid. The annual shipments of merchandise by the same foreign steamship lines amounts to 1,000,000 tons. More than 80 per cent of this is brought by the railroads to their connecting steamship lines, upon which no wharfage charge is made. The balance is local merchan¬ dise, or is received from other railroad or steamship lines. Upon this, however, varying charges for whai'fago are made. The receipts and deliveries by the coastwise steamship com¬ panies at Boston, according to careful computation made from data given by them, and from the books of the Chamber of Commerce, amounted last year to 1,892,500 tons. Upon practically the whole of this no wharfage charge was made. The various coastwise steamship companies lease their piers, and the rentals thereof are charged to the general-expense account of operating the lines. 98 DOCKS AND TERMINAL FACILITIES. The receipts at this port, last year, i'roni foreign ports by " ti'amp " steamers, so called, and sailing vessels, amounted to 500,000 tons. It is impracticable to obtain accurate figures as to what proportion of this tonnage paid a wharfage charge because many of the vessels were discharged at railroad termi¬ nals ; but it Is safe to assume that the {)ercentage of that })aid was not more than the percentage recei\ ed from cargoes by the regular foreign steamship lines, — namely, 60 per cent. From domestic ports the cargoes, other than coal, received here in sailing vessels amounted to about 1557,000 tons. A very large proportion of this was landed in)on the wharves of the dealers in lumhor and other building materials, and iq)on that no wharfage charge could be reckoned, because of being absorbed in the rental of the wharves. Possibly, however, 30 per cent, of this tonnage may have paid a ^\ harfage charge. To sum up, it may safely be assumed that, of the 8,000,000 tons of freight received and shipped at this port, only 1,000,- 000 tons paid a direct wharfage charge, the balance being taken care of through rentals and other line arrangements of the railroads. The decay of the Calcutta and East India trade, and the de¬ cline of our comuKU'ce with South America, Africa, Australia and Mediterranean ports, cannot seriously be attril)utcd to whai'lage charges, all hough as a lesser factor those ma^' have had some intlucncc; nevertheless, they constituted a ground of conqilaiut. However well founded, their removal would probably have little inllucnce in reviving the lost commerce with the countries named. The growing tendency to develoii commerce on regularly established ocean lines, to a great extent in close connection with railroad systems, is apparent in the absorjrtion of the water front in our leading ports wherever the railroads can obtain possession. Enormous cargoes and low rates, with trans-shipment at intermediate ports, like Liverpool, in con¬ tact by steamship lines direct with all the ports in the world, DOCKS AND TER]\nNAL FACILITIES. 99 absorb the bulk of the business, and tend to cast the trade of the world more and more into such regular channels. One of the direct results of this combination method of doing business is the making of a tlirough rate to the shipper, free from all terminal charges or e.xtras of every kind, and thus fostering the making of through contracts. As a conse¬ quence, the railroads or the steamships provide their own regular terminals, and all apparent charges tiierefor on goods in transportation or transference from one to the other are absorbed and obliterated. This is the growing method of doing ])usiness at poids in the United States, to which all transportation companies are adjusting themselves l)y making free terminal deliveries; and the ports themselves are en¬ couraging it by agitating the question of reducing port charges,—going so far, even, as to talk about abolishing them altogether at New Orleans, and freeing her commerce from all port dues. It would l)e difhcult to exaggerate the importance of this question of reducing port charges, now everywhere most earnestly discussed. The im})roved navigation at the mouth of the ^Mississippi and the increased accommodation and low cost at the wharves of New Orleans will naturally draw to that outlet much of the grain of the Mississippi valley. The rail¬ road port of Newport News, with its tíne harbor and cheap terminals, will take a large volume of the grain which might otherwise seek New York. The cost of lighterage and hand¬ ling at New York must place that port for many years to come at some disadvantage with other great sea-ports. Boston looks to the great north-west as its natural tributary, with which its lake and rail connections are most favorable ; and in competition with other ports she asks nothing more than that a uniform rate be established from interior shipping points to the great ports of the Atlantic sea board, equally the same to every port. Boston is one of the many Atlantic sea-ports lying between 100 DOCKS AND TERMINAL FACILITIES. St. John, N. B., and Galveston, Tex., all of which are way stations on these highways of commerce, in which the pro¬ ducers and forwarders of the entire country are concerned, and which, h}' means of co-operating i-ailroads, are making strenu¬ ous efforts to increase the import and ex})ort husiness through their respective ports. This export business recently has de¬ veloped south and west; and the rales of hauling, the terms of which are settled by the Joint Traffic Association, are mainly based on the mileage to the ports. The authorized freight charges hitherto established have enabled Boston to do Imsiness in competition Avith A'ew York and other com¬ peting ports, and under current rates our total import and export business has increased from $127,741,477 in 1880 to $152,394,341 in IS'lo. The close business connection maintained here between the railroads and the foreign steamsliip lines is such that no wharf¬ age charge is made upon goods or merchandise brought by the steamships to be delivered to and hauled by the railroads. The railroad Avharves have been especially fitted for this class of business, and the arrangements at this port are not excelled in that respect by those at any other port in the country, either as to economy or despatch in handling freight. As a consequence of the existing conditions at this port, the ocean freight-rates quoted in Avestern cities on breadstuffs to Liver¬ pool are practically the same Avhcther via Boston or New York. The great benefit of the arrangement for free Avharfage on goods passing through the port has been a¡)preciated at New¬ port NeAVS, Avliere substantially the same conditions exist, as Avell as at Philadelphia and Baltimore, and has been folioAved at Ncav Orleans, where during the past month of October the Illinois Central Railroad Company has opened the Stuyvesant docks, advertising them to be free to the landing of all goods destined for transportation OA^er its line. This arrangement has, as heretofore indicated, left open a DOCKS AND TEKMINAL FACILITIES. 101 ground of complaint on the part of local merchants that goods landed on a railroad wharf by a steamship, and not to bo trans¬ ported by that railroad, are subject to a charge. The attitude of the railroads Avith reference to this charge is that they main¬ tain the wharves in the interest of their patrons and customers, and that it is fair to make a reasonable charge to others using their wharves ; otherwise, they rvould receive no consideration for providing landing facilities. To this, so long as the rail¬ road charges are reasonable, there would seem to bo no valid answer. To the complaining merchants, the present amelioration would seem to lie in the fact that, OAving to this arrangement existing between the railroads and the steamships, a large export trafBc is encouraged, whereby an opportunity for re¬ turn freights at lessened rates and frequent sailings, on account of the great disproportion existing between imports and exports, is given. It has appeared in testimony that the tonnage seeking freight at Liverpool for Boston was so much larger than that for New York that there has sometimes been a difference as high as tifty })er cent, in the freight rates in favor of Boston. Thus, Avhile the local merchant is subject to a landing charge, he is indirectly kidebted to the party to whom he pays that charge for the loAver freight rates that more than compensate him, and Avhich are no greater than he would have to pay at any private wharf. While, therefore, insisting that certainty and stability of port charges are in themselves desirable ; the fact that most of the Avharves, other than those of railroads, are connected Avith storage warehouses ; that the charge for Avharfage on goods put therein is often eliminated; that the railroads make no wharfage charge at their terminals on goods shi[)pcd from and delivered to their lines ; and the turther fact that only one-eighth of the ocean commerce at this port pays any wharfage charge at all, — it is not thought 102 DOCKS AND TEEMINAL FACILITIES. best to recoruDiend any legislation providing tliat private 'tt'harves be subjected to any required system of cliai'ges as to vessels and goods ; but, realizing that the present tendency is toAvard the elimination of the wharfage charge ; that the sys¬ tem prevailing at this port is wrong ; that, although charges are not as a rule unreasonable, there liaA^e been times when they have seemed excessive ; and that the injury caused by a single error often mars reputation and damages business, — we take this opportunity of suggesting to the wharf owners, Avhere charges are made, the propriety of arrang¬ ing, so far as it may be within their power, that freights shall include deliveries, and thus absorb the cause of irri¬ tation. Should a system of public wharves, such as hereinbefoi-e recommended, be built, rates for their use could be estab¬ lished somewhat on the lines prevailing at the public docks at Nesv York, San Francisco and New Orleans, under the rules and regulations of the governing body. At all foreign ports a rate or toll is levied upon the vessel and cargo, and is substantially the same as the rates at Liverpool. Switching Ciiauges. Other complaints of more or less significance were made at the hearings that the transfer and switching charges on car deliveries at the railroad terminals at this port were excessive, and it ivas thought that legislation might be recommended with a view to remedying the evil. The Board, however, is of the opinion that poiver is already vested in the Railroad Commissioners to give relief in all cases of unreasonable, unfair or uncipial charges of that kind. As has already been pointed out, unequal charges arc not only unjust to the individual but are injurious to the public. The railroads, in performing their duty to the public, are bound DOCKS AND TERMINAL FACILITIES. 103 to treat all parties with absolute equality and without dis¬ crimination, so far as it is practicably possible so to do, and for any injury suffered an appeal to the commissioners is always open without unnecessary formalities or inconvenient delay. Takipf Rates. The most serious and far-reaching question of discrimina¬ tion affecting Boston presented to the Board is one with reference to which any recommendation in this report would be wholly unavailing. It relates to the tariff of raili'oad rates between Boston and inland points. Under the tariff of the past twenty-five years our export shipments of western products have grown enormously. During this period the rate from Chicago to Boston for export merchan¬ dise has been the same as to New York. These rates were established by a commission, after a hearing and due con¬ sideration of all the elements and conditions which go to make up ecjualization in haulage. It is fully appreciated by all the parties interested that any change which might result in discrimination against Boston in western freight rates, be¬ yond what already exists, could not be made without jeop¬ ardizing the commerce of the port, and therefore lessening the opportunity now afforded to all citizens of the Common¬ wealth to avail themselves of frequent shipments at low cost under the present conditions. An examination of the following tables will bear testi¬ mony to the steady growth of the commerce of Boston m every decade since 1830 ; also to a maintenance of her rela¬ tive position among her sister ports during the past twenty- five years ; also to the value of her monthly exports since June, 1895 ; also to the nature and quantity of exports by a single steamship line during the year 1895, together with a sample of export and import cargoes : —- 104 DOCKS AND TEEIMTNAL FACILITIES. Value of Exports and Imports at Boston for a Series of Years ending June 30. YEARS. Exports. Imports. 1830 $2,506,302 $8,674,976 1840 4,485,860 10,591,575 6,953,528 28,659,733 1860, 13,530,770 39,366,560 1870, 14,136,429 47,524,845 1880, . 59,238,341 68,503,136 1890, . . 71,201,944 62,876,666 189;'), . . 85,505,196 66,889,118 1896, 95,851,004 79,179,864 Value of Exports and Imports at the Principal Ports of the United States for a Series of Years ending June 30. YEARS. Baltimore. Boston. cuarleston. Exports. Imports. Exports. Imports. Exports. Imports. 1870, $14,530,473 $19,512,468 $14,136,429 $47,524,845 $10,780,717 $505,699 1875, 27,615,822 27,788,992 30,866,033 51,982,226 19,655,966 680,343 1880, 76,253,566 19,945,989 59,238,341 68,503,136 19,591,127 202,790 1885, 45,052,904 11,849,696 62,000,103 53,445,929 18,882,566 446,901 1890, 73,983,693 13,140,203 71,201,944 ( 62,876,666 13,788,751 646,644 1892, 98,8.50,197 13,418,523 87,175,636 71,780,489 16,718,386 896,681 1895, 61,938,991 12,260,706 85,505,196 66,889,118 10,712,471 666,752 1896, 66,398,905 13,476,630 95,851,004 79,179,864 8,497,732 502,297 YEARS. 1 Galveston. New York. New Orleans. Exports. Imports. Exports. Imports. Exports. Imports. 1870, $14,873,732* $509,231* $230,311,90ll $293,990,006 $108,147,847 $14,993,754 1875, . 16,225,907* 1,218,034* 344,703,069^ 368,637,580 71,613,982 12,356,487 1880, 16,749,889 1,094,514 392,560,090 459,937,153 90,442,019 10,611,353 1885, 12,679,1.54 1,157,370 344,514,76lj 380,077,748 79,147,574 8,688,552 1890, 24,446,831 415,792 349,051,791 516,420,693 j 108,126,891 14,658,163 1892, • 35,386,256 1,317,000 413,952,783 530,538,112 131,252,873 18,909,553 1895, 41,886,6.51 369,575 325,580,062| 477,741,128 68,413,362 13,861,507 1896, 36,397,091 602,770 354,274,941 499,9.32,792 1 80,986,791 13,468,469 * Includes all Texas, of which Galveston was the only port doing business reckoned in the etatietice of the United States. DOCKS AND TERMINAL FACILITIES. 105 Value of Exports and Imports, etc. —Concluded. TEARS. Mobile. puiladelpnia. San Francisco. Exports. Imports. Exports. Imports. Exports. Imports. 1870, $22,424,175 $1,349,488 $16,934,610 $14,500,797 $35,976,324 $21,834,103 1875, 10,132,188 1,087,745 28,611,654 24,236,387 31,238,343 29,697,483 1880, 7,188,740 425,519 49,649,693 35,944,500 32,358,929 35,221,751 1885, 3,012,556 128,169 38,723,261 29,919,019 38,115,624 35,040,350 1890, 3,372,429 107,015 37,410,683 53,936,315 36,876,091 48,751,223 1892, 2,785,735 165,778 58,541,457 60,006,791 40,737,044 47,135,684 1895, 5,173,303 1,009,281 35,043,093 48,802,676 24,873,148 36,269,637 1896, 6,995,127 940,579 39,567,376 43,840,836 31,582,910 41,400,317 TEARS. Savannah. Portland. Norfolk and Portsmouth. Newport News. Exports. Imports. Exports. Imports. Exports. Imports. Exports Imports. 1870,. $29,749,058 $1,001,917 $3,792,938 $2,922,164 $1,307,440 $14,451 -- 1875,. 29,666,666 755,901 3,463,561 1,782,987 5,243,986 18,929 1880,. 23,992,364 483,802 3,967,250 1,391,086 14,065,455 47,057 1885,. 20,871,446 652,625 4,149,269 1,297,080 14,797,181 130,214 $3,131,689 $151,227 1B9Ö,. 30,884,451 472,343 2,994,362 622,034 14,247,477 89,042 6,958,369 54,180 1892,. 25,704,173 301,904 2,199,197 844,929 13,065,837 44,435 14,444,367 190,114 1895,. 20,523,760 425,681 1,978,109 429,900 7,792,572 268,330 13,469,541 1,032,849 1896,. 21,409,027 273,555 3,642,445 480,163 6,761,484 219,350 14,850,117 1,131,628 * Previous to 1883 do United States figures compiled. In 1883, exports, $1,509,689; imports, $18,255. The following table is made up from the custom house re¬ ports, and, while it fails to show the actual tonnage of the ports, it affords the only reliable statistics, made up after a uniform method, from which trustworthy com])arisons may be made : — 106 DOCKS AND TERMINAL FACILITIES. Eegistered Tonnage of Vessels entered and cleared at the Principal Ports of the United States for a Series of Years, ending June 30. YEARS. Portland, Me. 1 New York. Philadelphia. Entered. Cleared. j Entered. Cleared. Entered. Cleared. 1870, .... 175,175 229,782 3,093,186 2,971,924 300,006 282,639 1875, .... 244,565 320,442 4,421,074 4,311,433 582,295 624,185 1880. .... 122,723 198,298 7,611,282 7,429,802 1,391,312 1,240,364 1885 132,558 203.905 5,659,733 5,440,724 1,638,167 921,276 1890, .... 107,993 152,803 6,258,222 6,025,518 1,410,640 1,119,454 1894 138,409 179,122 7,121,527 6,964,927 1,431,901 1,261,067 1895, .... 116,060 134,252 6,688,595 6,499,490 1,426,795 1,284,639 YEARS. Boston. Charleston. Mobile. Entered. Cleared. Entered. Cleared. Entered. Cleared. 1870, .... 793,927 570,233 36,332 52,812 79,249 79,738 1875, 768,678 632,873 102,023 119,274 48,352 58,950 1880 1,347,447 1,235,752 116,283 148,218 61,471 69,181 1885 1,152,415 975,495 124,785 148,754 89,558 96,710 1890, .... 1,404,828 1,208,507 86,710 120,969 126,576 127,436 1894, 1,696,118 1,430,828 97,309 101,118 198,899 208,469 1895, 1,689,967 1,425,611 99,741 107,139 260,917 271,481 YEARS. Baltimore. New Orleans. San Francisco. Entered. Cleared. Entered. Cleared. Entered. Cleared. 1870, 272,290 246,569 458,447 561,458 393,983 493,555 1875, 561,314 555,468 454,006 523,584 720,438 747,009 1880, 1,502,713 1,491,060 760,910 858,755 704,054 777,595 1885, 627,418 739,024 656,931 674,766 881,299 973,231 1890, 845,239 1,124,262 1,019,522 1,015,550 1,030,538 1,080,974 1894, 808,980 1,121,839 1,018,134 1,045,655 1,100,333 1,119,227 1895, 630,907 977,350 999,773 997,996 1,142,650 1,078,954 DOCKS AND TERMINAL FACILITIES. 107 Jîer/isfered Tonnage of Vesseltt, etc. — Concluded. YEARS. Savannah. Galveston. All Other Sea-ports. Entered. Cleared. Entered. Cleared. Entered. Cleared. 1870, 86,110 136,437 31,555 52,701 558,929 683,780 1875, 185,046 167,397 91,913 127,579 963,434 1,152,505 1880, 183,895 170,092 117,972 99,007 1,331,267 1,577,563 1885, 181,263 180,889 95,563 89,536 1,647,802 2,051,965 1890, 246,626 255,343 173,473 170,102 2,655,237 3,028,131 1894, 253,548 298,628 247,030 280,562 2,912,569 3,294,891 1895, 237,748 300,451 367,738 399,891 3,064,557 3,446,390 Exgwrts at Boston for the Fiscal Year ending .June 30, 1896. 1895, July $7,055,404 August, o « . 6,239,500 September, o . . . 0,195,283 October, 8,914,803 November 7,861,691 December, 9,374,803 1896, January, ........... 9,045,196 February, 7,314,483 March, 9,224,356 April, 8,264,843 May 7,584,276 June 8,776,366 $95,851,004 Exports at Boston for Twelve 3[onths ending SegÉ. 80, 1896. 1895, October, November December 1896, January, February, March, April, May, . June,. July, . August, Septembe $8,914,803 7,861,691 9,374,803 9,045,196 7,314,483 9,224,356 8,264,843 7,584,276 8,776,366 8,036,999 7,769,402 7,880.718 $100,047,936 108 DOCKS AND TERMINAL FACILITIES. Exporta from Boston to Liverpool by the Warren Line of Steam¬ ships during the Year 1895. Agricultural goods, packages, 5,195 Duck, rolls, .... 40 Apples, barrels, 67,989 packages, 17 cases, 260 Dyestutfs, barrels, . 6 Asbestos, bags, .... 1,000 Etfccts, packages, 5 Bark, bundles, 10 Eggs, cases 2,786 Beef, quarters. . 209,993 Electro-plates, boxes. . 27 Beeswax, cases, 149 Emery cloth, packages, . 22 Belt dressing, packages, . S3 Emery wheels, packages, 20 Belting, bundles. 2 Empty packages, 10,263 Bicycles and parts, packages. 114 Extract, barrels, 945 Blacking, packages, . 2,544 Feathers, bales, . 57 Blocks, crates, . 711 Fish, drums, .... 325 pieces, .... 72,129 packages, .... 324 packages. 92S Flaxseed, sacks, 142 Bones, bags, .... 317 Flour, barrels, .... 926 Books, packages. 19 sacks, .... . 255,602 Brass, packages, 44 Furs, bales, .... 82 barrels, old, . 7 Glucose, barrels, 2,370 hogsheads, old. 13 Glue, barrels, .... Ö packages, old. 9 Grain, barley, bushels, . 9,860 Brushes, cases, .... . 1¿ corn, bushels, . 2,060,720 Bungs, barrels . 598 wheat, bushels. . 2,680,169 Butter, boxes 212 Grape sugar, bags, . 3,000 tubs •í'2 Hair, bales,. ... 4,963 packages. 175 Handles, packages, . 4,631 Canned goods, cases, 28,472 Hardware, packages, 410 Capstans 13 Hay, bales, . 30,974 Caramel butter, tubs. 25 Heaters, . ... 34 Carriages aiul parts, packages. S Hempj bales, .... 4,600 Castings, packages, . 478 Hides, dry, bales. 151 Castors, pac-kages, . 12 green salted, bales, 73 Chair stock, packages, 63 bundles. 1,923 Cheese, boxes 86,521 Hominy, barrels, 3 Churns, packages, . 17 Hoofs, bags, .... 368 Cigarettes, cases, 4 Hops, bales, 820 Clover seed, bags, 60 Horns, bags, .... 56 Cocoanuts, bags, 1,813 Htirn tii)s, bag-i 2,803 Conduit, coils 31 Household goods, i)ac-kages, . 514 Confec.tionery, packages. 166 índigo, chests 45 Copjier, bale, . . . ^ 1 Iron pipc-^, packages, 897 Corn meal, sacks, 20 l\nivcs, cases, .... .30 barrels, . 5 Lamp-black, barrels, 113 (^ottolcnc, packages,. 1,350 Lard, barrels, .... 250 Cotton, bales . 139,680 half barrels, . 12,3.51 bags, .... 325 boxes, .... 12,933 Cotton-seed, sacks, . 7,889 cases, .... 1,622 oil, barrels, . 1,433 crates, .... .50 Cranberries, l)oxes, 201 lirkins 6,455 crates, . 50 pails . 231,326 Crayons, c,a.ses, .... 279 tierces . 25,313 Crucibles, barrels. 97 Leather, fmisbed, bags, . 42 Cutch, boxes, .... 100 bales, . 11,229 Cutling-blocks, packages, 70 bundles, 2,492 Desks, cases 911 cases, . 1,507 Domestics, bales. 1,128 rolls, . 45,614 cases. 391 rough, bales. 1,171 packages, 523 bundles,. 9 Drills, cases 30 scrap, bags. 26.786 Duck, bales, 50 bales, 156 bolts 498 barrels, . 259 DOCKS AND TENMIXAL FACILITIES. lOü E.rjiorts from Jiofiton, etc. —Concluded. Leather, scrap, bundles, . 40 Rope, <'.oils,, 4 cases, 320 Rosin, barrels. 5,950 casks, 3 Rubber goods, packages. 903 rolls, 7 Rum, barrels, 145 sole, bales, . 4,328 liogsheads, 477 cases, . 7 kegs, . 25 rolls, . 2:i(i pumOieons, 1-20 remnant, rolls, . 29 Sand, barrels, 12 Leather goods, packages. 43 Sand paper, packages, 510 Live stock, calves, . 121 Scales, cases, 18 cattle, . 47,()2S Sewing machine.-:, 3 sheep. 07,446 Shoes, cases, 1,529 Logs, 723 Shoe goods, packages, 83 Jmmber,* bundles, . 13,782 Shocks, ])ackages, 36 pieces, . 18"),312 Sieve rims, crates. 20 Machiucry, packages, 1,780 Skins, hales. 6 .Match blocks, pieces, 2.144 casks, 13 Medicine, packages,. 154 Soap, packages, 1,350 Metal, packages, 1,243 Sodium, barrels. 33 Miscellaneous, packages, 503 Sponges, packages, . 5 Missionary goods, packages,. 13 Starch, barrels, 500 :\Iutton, carcasses, 550 Staves, pieces, . . 427,399 Nails, cases. 216 Steel rollers, 4 Nickel matte, casks, . 66 Stove polish, boxes, 79,235 Oatmeal, boxes 8 Sugar, V)ag>, 1,500 sacks Sugar meal, bags, 4,000 Oil, barrels, 2,359 Syrup, barrels, •202 tierces Tacks, packages. 959 lard, barrels, 50 Tallow, barrels, . 3,448 palm, casks, 60S hogsheads. 135 Oil, red, barrels, 500 tierces, . Oilcake, sacks, . 3,876 Tape, rolls, . 56 Oleo-oil, tierces, 153 Tar, barrels, 374 Organs, cases, .... 441 Tobacco, cases, . 14 Oi gan materials, packages. 17 hogsheads, 918 I'aint, packages, 64 lialf hogsheads. 250 Paper, cases, 3 tierces, 90 rolls, 321 package, . 1 Paper stock, pa<'kag(is. 10 Tripoli, barrels, 341 Piioto-goods, cases, . 8 sacks, 401) Pigs, carcasses, . 5,11 s Tro<'bes, cases, . 190 Pitch, packages, 106 Wa^liei>, cases,. 12 Poles, . . . . 3,210 Waste, bales, 4,005 Printed matter, cases. 1,423 Wax, bags, 25 Provisions, barrels, . 4,340 l)arrels, 2,495 half barrels, , 162 tubs, . 56 l)Oxes, . . 120,992 packages,. 182 cases, 8,3S9 Wiiiskey, cases,. 231 kegs, 45 Wire, packages, 75 licrciis, . 7,311 Wooilcnware, packages, 160 packages, 2(> Wood pulp, bundles, 1,061 Prunes, boxes, 3,040 rolls, 664 Padiutors, luicka.ges, 220 Woodwork, packages, 22 Kags, bales, 165 5Vool, bales, 157 Rivets, kegs, 105 bags, 72 Rollcil oats, barrels. 727 Zinc dross, barrels, . 108 half barrels. 50 boxes, 2 boxes, . 18,217 casks. 5 * Ash, gum, hickory, maple, oak, pine, poplar, walnut, whitewood. 110 DOCKS AND TEEMINAL FACILITIES. Cargo of Steamship " St. Ronans," which cleared from the Port of Boston Nov J, 1896^ for the Fort of London, Advertising matter, boxes, 30 Leather, rolls. 50 Apples, barrels, 1,005 bags, 897 crates, .... 201 Leather board, cases, ^ 6 Bacon, boxes, 117 Lumber, boxes,. 2 Beef scraps, cakes, . 147 pieces. 3,007 bags, . 2 Machinery, cases. 6 Beef, tierces, .... 75 Mahogany, pieces. 2,836 Blowers, packages, . 58 Medicine, boxes, .... 315 Bran, bags, . . . . 23 Oatmeal, bags, . 250 Brassware, case, 1 Oats, bags, . ... 31 Butter, tubs, 1S2 bushels, 19,679 boxe.s, 13 Organs, boxed, 07 Canned beef, ca^e^, . 1,865 Paper, cases, 48 Ca^li carrier material, barrels, 14 rolls, 79 Cattle, head. 525 Printing machinery, jiackages, 12 Chair stock, cases. 10 Shoe black, crates. . 100 Confectionery, pails. 100 cases. 10 boxes. 35 kegs, 10 Corn, bags, . . . . 475 barrel, 1 boxes, 400 boxes. 10 bu>hels. 41,686 Shoe machinery, i)ackage3. 21 Dowels, bundles, 289 Slioes, cases. 107 Duck, bales, . . . . 3 Skates, cases, 14 Eggbeaters, cases. 12 Soap, boxes, .... 27 Electrical machinery, case, . 1 Starch, barrels. 6 Flour, sacks. 9,830 Stock, furniture. 71 Games, boxes, .... 2 Straw, bales, 26 Ilams, boxes, 225 Syrup, barrels. 250 Hay, bales, Tacks, boxes, . ... 12 Horses, . . . . 57 Tallow, package, .... 1 Lard, half barrels, . 500 tierces, . ... 40 tub.s, 1,700 Thread, cases, 2 pails. 500 Tongues, barrels 10 Leather, cases, 33 Type, boxes, 15 bales, 40 Woodenware, cases, . . c 15 bundles, 186 Cargo of Steamshi]) Armenia t," which (icared from the Port of Boston Nov. b\ 1896, for the Port of TAverpool. Alarm tills, crates, 24 Flour, sacks. 955 Applet, barrels,. 18,157 barrels, . 175 Bacon, boxes. 2,610 Ilay, bales, .... 1,126 Beef, quarters, . 3,760 Lard, pails, . .... 3,139 Boots and shoes, cases. 6 half pails,... 250 Cattle, head. 799 boxes, 50 Confectionery, crates. 50 barrels, .... 35 Corn, bushels. 30,378 Leather, rolls 574 Corn-Hour, bags. 400 packages 206 Cotton, bales, 5,730 bales 37 Cotton-waste, bales, . 229 cases, .... 10 Desks, cases. 49 Organs, packages. 16 Drills, bales. 106 Pork tongues, barrels, 20 cases, 150 Provisions, bundles, 36 Dry goods, box,. 1 boxe^, 230 Ear-coVn, bags, 600 Rolled oats, sacias. 17 Empty cases, 16 Rubber-thread, cases, 11 DOCKS AND TEKMINAL FACILITIES. Ill Ccmjo of Steamíship <■'■ Armenian," etc.—Concluded. Rum, barrels 100 Tallow, barrels, 14 Starch, barrels 30 hogshead, .... 1 Stoves, case, .... 1 Tongues, boxes, . . . • . 10 Straw, bales 58 Wheat, bushels, Ill 377 Car/jo of Steamship Pavo nia,' which arrived at the Port of Boston Nov. 25, 1896, fi •om the Port of Liverpool. Ale, casks n Machinery, cases, .... 87 Bleach, casks, 26 Mackerel, barrels. 401 Book.s, cases, • , . . 13 Manganese, casks, .... 48 Brandy, cases, 500 tons, , . . , 12 Bronzes, cases, . . r . 2 Music goods, ease, . 1 Caustic soda, drums,. 480 Oranges, cases, .... 88 Clay, casks, .... 550 Paintings, cases, .... 2 Clocks, case, • . . • 1 Paper, cases, . ... 7 Clothing:, case, .... 1 Periodi(^als, cases 7 Coal work, casks, 24 Plants, cases, 14 Crockery, crates. 102 Rat traps, cases, .... 55 Dry goods, cases, 41 Rubber, packages, .... 91 Ebony, logs, 85 Sardino, cases 429 Emery ore, tons. 300 Seed, case, 1 Figs, boxes and cases. 267 Shawls, cases 3 Fish hooks, cases, 3 Sheep's guts, casks, .... 34 Floor cloth, cases, 3 Silverware, case 1 Furniture, cases, 25 Skins, casks, 202 Gloves, cases, .... 3 prepared, c-ases, 2 Golf sticks, case. 1 Soda, cases, 5 Grapes, barrels, 127 Statues, cases, .... 9 Hardware, cases, 2 Steel, cases. 8 Hide cuttings, casks, 303 Sumac, casks, 75 Horn piths, packages, 40 Tin, boxes, 886 combs, cases, . 2 Vegetables, cases, .... 50 Indigo, cases 2 Walnuts, bales, 25 Iron, bars 994 Wine, cases, ..... 380 Iron bedsteads, bundles, 378 Wool, bales 120 Lace goods, cases, . 9 Woollens, cases, ...» 5 Linens, cases, • . • • 3 A 15 KY D o C K . The omissions afiectiiig the growth of a port may he quite as inqiortant as the wrong-doings. Attention is therefore invited to furtiior improvements, in which the aid of the Federal gov¬ ernment will have to be obtained before they can be carried out. No discussion of maritime and commercial wants here would be complete without a reference to the inadequacy of the present dry-dock accommodation. Every port abroad of any 112 DOCKS AND TERMINAL FACILITIES. consequeucc has at least one dry or graving dock, and at all the leading British and continental sea-ports there are many,—as at Liverpool, where there are twenty-four, and at Antwerp, wiiere there are ten. Some of them are small and some large, the largest of all, nine hundred feet long, being at Glasgow. That a })ort of the size and character of Boston ought to maintain ami)le dry-dock accommodation cannot admit of question ; but that it does not, and is not likely to for the present b}' individual enterprise, is also unquestionable. "Were it not for the presence of the Navy Yard, some doubt might exist as to the best method of treating this subject ; but, as it is, there would seem to be but one proper thing to do, and that is, to request the Federal government to build a dock of proper dimensions at the Navy Yard. The North Atlantic squadron can have no better place for docking and reijairing than at this port, whether the growing navy is for the purpose of making or of a^■oiding war. The war vessels assigned to cruise oil' the North Atlantic coast ought not to have to rely on the foreign port of Halifax in case of disability, nor yet be obliged to run south of Cape Cod to a port for repairs. Upon the occasion of the visit of the Committee on Riv^ers and Harbors of Congress to Boston last spring, a call was made at the Navy Yard at Charlestown, and a location examined most admirably adapted for a dry dock of the I'equired dimen¬ sions. It lay contiguous to the present dry dock, the pump¬ ing machinery of which could be utilized for a similar service towards the new dock. The basin that would be required is already partially excavated, and here the government could establish the needed dock at a minimum of cost. "Whenever occasion occurs for using the dry dock recently built by Ihe government at Fort Royal, S. C., workmen, material and even machinery have to be forwarded some seventy-five miles from Savannah before any substantial re- DOCKS AND TERMINAL FACILITIES. 113 pairs can he made. Here at Charlostown, however, with depth of water sufficient to float the deepest battleship, would he found an army of skilled workmen, ready at a day's notice to use the sj)lcndid hut— until the order oí the Navy Department in Novemhcr last — hitherto idle equipment with which this yard is amply furnished, and repairs of any description could speedily he made at the smallest cost. We recommend the passage of a resolution asking our Senators and Representatives in Congress to urge upon the Federal government the desirableness of locating a dry dock at Charlestown, which might under suitable regulations be opened to the public for the largest vessels when not in use by the navy. A X C U o R A <; E G ROUNDS. The subject of adequate anchorage grounds near the wharves is of growing importance. At present they are located on both sides of the main channel, the one being adjacent to Bird Island flats and the other lying off the moutii of Fort Point Channel near the Commonwealth's South Boston flats. These areas are not deep enough at present for large steam¬ ships and other deep-draught vessels, which, when not going to berth, are obliged to drop anchor in mid-stream, in the path of navigation. Even now these grounds are not infrequently overcrowded, and it cannot be long before anchorage on the south side will have to yield to other uses. The objections to requiring vessels to anchor farther than may l)e necessary from the wharves are too obvious to re= quire discussion. Bird Island flats lie between the main channel and the Governor's Island channel. Suggestions for the removal of these flats have several times been made. The unknown effect which such removal might have in the possible diversion of the flow of the waters of the upper hai'bor from the main 114 DOCKS AND TERMINAL FACILTLTES. channel to the CTOVornor'y Island channel — the consequence of which might he disastrous and destructive to the improve¬ ments heretofore made in other parts of the harbor — is a sufficient reason for discarding, for the present, any such plan. But, on the other hand, the proposition for walling in an area on the crest of the flats and dredgino; a basin O O between this area and the main channel, in which ample depth could be readily obtained and the material dredged could be pumped over the walls, is not oi^cn to any serious objection. In carryhig out this idea, not only wmuld the present anchorage ground in that locality l)e more than doubled, but the way would be opened for almost indefi¬ nitely extending anchorage facilities, as increased use shall make necessary. At Hamburg, Rotterdam, Amsterdam and other places abroad anchorage buoys are so located as to be convenient moorings for vessels, and are so arranged that vessels shall moor by stem and stern. The area usually required by each vessel for swinging with the tide when at anchor is thus reduced, and the allowance of space sufficient only to permit of boat service l)etween them when moored greatly increases the field of anchorage. Adojfiing the foreign plan, a system of anchorage buoys, after exea\ating the required depth oil' these flats, could be arranged which would aflbrd all the accommodation needed for years to come. In the same mamuir, provision could be, made at the easterly end of the filled South Boston flats, in the area lying between them and South Boston, for the fleet which usuall}' lies oil' Fort Point Channel. A temporary basin could be excavated there, without interfering with the exten¬ sion of the wharf frontage according to the existing projects for occupying the entire line from Fort Point Channel to the Reserved Channel, as from time to time increased dock and wharfage facilities in this locality might be needed. For it will be many years before such aiuliorage basin, if DOCKS AND TERMINAL FACILITIES. 115 constructed, would have to give way for wharf improvements, and during that time it will make a safe and convenient place for vessels to lie at anchor. Watek Basiíts akd Waterways. As has been pointed out, Boston is a natural outlet for the products of the north-western States and Canada. "VTith these territories an established rail and lake connection has for many years existed through the lake ports and as far east as Montreal and Quebec. And it is thence, and not from the middle and south-west, that the trade must be chiefly sought in the future whereby to expand and increase the volume of the bulkjr shipments from this port. It is upon the railroads that Boston must depend for its future growth and prosperity, as in the past. Their enter¬ prise has built up the business of the port. But the same public spirit that led to the building of the Hoosac Tun¬ nel, which has many times repaid its cost to the public, is needed to maintain the metropolis in her place as second for steamship tonnage within this countiy. Private enter¬ prise, however, should now also be turned toward developing diversifled industries at this port. Located advantageously to become a great manufacturing district, all the natural ad¬ juncts should be carefully nourished. Not only do lines of railroad, well equipped to carry raw products to the mills, workshops and factories of every description, and bring back manufactured articles, radiate in all directions from Boston, but also water communication as well affords convenient ac¬ cess for landing raw material where needed, at the lowest cost. The export of manufactured articles should be in- • creased, and new lines of ocean transportation with all parts of the world must be opened. "VYith proper amendments to the tax laws which now tend to drive capital away from the Commonwealth, industries will be drawn hither, where the 116 DOCKS AND TER:MINAL FACILITIES. products of skilled labor will find a ready market at the threshold of their home. In the next hundred years the valleys of the Charles, the Mystic and the Neponset rivers should be filled with the noise of industry. And, while the purity of the water flow should be maintained, and all sewerage and deleterious matter be kept out, the Ijanks of the rivers in their lower reaches, instead of being given over to pleasure, should be the places of unlading and embarking water-borne freights. Nowhere in the old world arc such economic op})ortunitics thrown away. The waterway, whether by river or canal, has been made useful for centuries. France has 7,703 miles of rivers and canals used for traffic, and her admirable system has contributed largely to her com¬ mercial and industrial development. Large annual expen¬ ditures are coutinually made in improving and extending her interior waterways. Of Germany, similar truths may be stated, and, in addition, that nearly all the building materials of Berlin, Magdeburg and other cities were brought thither by canal. In Belgium there is more interior freight transpor¬ tation by water than by rail. The greater part of the vast imports and exports of Hamburg, Rotterdam, Antwerp and other European cities are either received for shipment or dis¬ tributed from the steamships by barges navigating far into the interior of the continent. The United Kingdom is cross-cut and interlaced with canals, having no less than 3,831 miles, with an average capitalization, excepting the iManchester Ship Canal, of about $31,000 a mile, and transporting annually in the neighborhood of 36,000,000 tons of freight. While an appreciation of the value of the waterways was early shown in various parts of the United States, the build¬ ing of railroads has of late years so far superseded and over¬ shadowed them as to have led to their neglect. Recently, however, as the problems of economical irans[)ortation have DOCKS AND TERMINAL FACILITIES. 117 been receiving closer study, the canals are gaining more attention. The Erie Canal, to which New York is indebted for so much of her growth and prosperity, and which during many years was neglected, has lately been recog¬ nized as yet possessing the possibility of becoming again a valuable tributary to the port of New York, as well as of being an agencj^ in developing the country through which it passes ; so much so, that, notwithstanding serious oppo¬ sition, the Legislature of New York in the session of 1894 authorized, subject to a referendum, an expenditure of $9,- 000,000 of public money for the purpose of deepening the bed and improving the locks of the canal, in order that it may meet the requisites of modern canal transportation in the transference of crops and merchandise. This action was ratified by popular vote at the next election. While Boston has no tributary canals, yet all the sea-port towns on the New England coast, many of which are grow¬ ing to be industrial centres, are tributary to the port by water as well as by rail. In addition, the sonthern ports, in con¬ nection by direct steamship lines, are adding largely to our exports, as well as being both consumers and forwarders of our shipments. Cheap and expeditious handling of coastwise vessels and their cargoes will perform the service for this centre in building up and developing the trade, without any additional cost for maintenance of the waterway. After witnessing abroad earth excavations costing vast sums, with the result of creating far less than the bounty of nature has blessed this community with, this Board is prompted to record its warnings against encouraging any plans which might lead to the filling of South Bay, — a most useful and valuable basin for locating docks and wharves and tei*minal facilities,—and thus lessening the com¬ petition of water-borne with the land-borne freights. Another point of view demands brief attention. As greater 118 DOCKS AND TERMINAL FACILITIES. Bostou extends aud fills up, congestion of traffic in business avenues will be unavoidable, becoming only a question of degree. Therefore, the provision of other ways for trans¬ portation of merchandise must be a constant study, and wherever the waterway can be used, it should be preserved. The objections to drawbridges and consequent delays are largely of degree, and are usually more than compensated by the benefit conferred upon the cause of the interrujfiion to ti'avel. In Hull, Amsterdam, Rotterdam, Hamburg, Havre and else¬ where the interruption to business by raising drawbridges in main thoroughfares is considerately' borne, and the prosper¬ ity of those places is evidence tending to show no serious injury resulting therefrom. Here, however, it is to be hoped that the raising of all bridges to the height necessary to give a clear barge way between the under side of the draw and mean high water is only a question of time, and then, as drawbridges disap¬ pear, along with mastless vessels, the waterways will be pre¬ served and used without interruption to travel. The chea})ness of the cost of manufactured articles will establish here a status for successful competition in foreign markets. "When the manufactures of the district become in considerable quantity exportable, then will begin the assem¬ bling of cargoes for shipment hence; diversified cargoes will lead to trade with many ports and to new lines of steam- shii)s running weekly to continental ports, and quick })as- senger liners landing passengers here by half a day and in New York by several hours earlier than the fastest passage direct to New York can be made. D0CIv6 AND TERxMINAL FACILITIES. 119 Free Ports. Personal inspection and inquiiy were given to the free ports at Copenhagen and Hamburg. The Copenhagen free port was determined upon earl}' in 1891. It was opened to tratlic in November, 1894. Its depth of harbor and accessibility to the shallow harbors of the Baltic arc claimed to entitle it to a large business in the trans-shipment of goods. As yet, however, the figures showing the growth of its business have not come to hand, and it is perhaps too soon to expect satisfactory returns. We trust it will realize the expectations of its projectors at Copenhagen. The conditions at Hamburg are very different from those at Copenhagen. It lies where transportation by river barges, that cheapest of all methods of distributing products, termi¬ nates and ocean navigation begins, and becomes, therefore, a natural point of trans-shipment. On entering the customs union in 1888, Hamburg insisted upon retaining her old-time rights as a free port, and a section of twenty-five hundred acres of the city and harbor was laid out and wholly separated from adjoining territory, and therein are located docks, quays, -warehouses and factories. The objects sought to be accomplished were the adaptation of the new port to such changes as the entry into the customs union might naturally bring about in the trade and commerce of the city. As the people of Hamburg were thereafter to be required to pay duties on imports, the character of the im¬ portations was liable to change. Consequently, to meet any loss of commerce in this direction, the accommodations and facilities of the free port were established upon the most lib¬ eral scale, with the hope, since realized, that it would thereby become a vast entrepot for goods, to await sale, reshipment or manufacture. The success of this free port is as much. 120 DOCKS AND TEEMINAL FACILITIES. if not more, owing to the character and enterprise of the mer¬ chants as to the facilities there offered. Bremen also has been a free port from time immemorial, and, like Hamburg, joined the customs union in 1888. A portion of its territory has been separated and surrounded by a customs patrol, within which is included a large ware¬ housing district, as well as docks, quays and ample wharfage accommodation. The propriety of establishing a free port at Boston has apparently engaged public attention somewhat of late, and this commission has taken the subject under consideration. With reference to establishing free ports in this country, however, it may be well to call attention to the fact that all importations may go into United States bonded ware¬ houses and be exported without liability to pay any import duty. There are, nevertheless, imported articles on which duties are paid, the character of which has been changed by manufacture. But on these, when exported, under rules and regulations of the treasury department, a rebate of ninety-nine i)er cent, of the duty is allowed. As, for in¬ stance, a rebate is allowed of the duty on the tin plate in the cans containing kerosene oil exported from this country ; a rebate is allowed of the proportionate part of the duty collected on molasses, when dutiable, to the exporter of the rum, when he can show that the rum ^vas manufactured from the residuum of the molasses left after boiling for sugar ; a rebate is allowed of the duty when paid on imported lumber of which the boxes in which bacon is exported are manufactured. It is not assumed that these examples cover all cases, as there are doubtless many instances in which it would be impracticable to so separate the value of the imported article in the manufactured product as to justify a claim for rebate. The free port is a commercial problem in which the question DOCKS AND TERMINAL FACILITIES. 121 of cost ill outlay and maintenance is to be balanced against the probts on the exported products. In view, then, of the present system of bonded warehouses and of rebates on the dutiable raw material in manufactured articles to be re-exported, and of the great cost of building and maintaining a free port, after careful consideration the com¬ mission is inclined to the view that the method of pro¬ cedure in actual use is better adapted to conditions here than the method in vogue in foreign countries. It is, however, conceivable that conditions may arise which would indicate the desirability of establishing, experimentally, a free port S3'S- tem in localities favorably situated for the purpose. In that case, some portion of the territory in Boston harbor might aiford exceptional facilities for testing the value of such a means of stimulating exports of manufactures as would seem to have been successfully exploited at some European ports. It has not been thought desirable to go into the details of the plans herein presented, for the reason that the determina¬ tion of a policj' with reference to the treatment of a great harbor must be reached on grounds quite independent of the arrangement of the manner of its development. Just enough, therefore, has been outlined to show the entire feasibility of adapting the unimproved hai'bor frontage to public ownership and control of wharves and docks, without any attempt at exhibiting the details of structures or excavations. The inner harbor itself is wonderfully adapted for a most extensive expansion of wharf frontage and dock accommo¬ dation, as has been heretofore pointed out in the reports of the Harbor and Land Commissioners. It is the rate of the growth of demand wherein exists great uncertainties. If in time the increase of commerce and the experiment of pub¬ lic ownership and control shall justify, two faces of Bird 122 DOCKS AND TEEMINAL FACILITIES. Island and the whole of Winthrop shore front as far down as Shirley Gut are available for acquisition and iruprovenient. Embraced by the shores of East Boston, BTnthrop and Governor's Island lies an area a mile square beyond the lines of any possilde pier heads. With the exception of its channels, this area is mud flats, for the most part exposed at low water, of a material easily and cheaply to be excavated, a considerable portion of it by pump dredging, all of ^vhich could be used in filling the adjacent wharves and territory thereto adjoining. Such a development would not only in¬ crease the wharf and dock accommodation, but would pro¬ vide a fine anchorage basin, completely protected from winds and waves. It will be the function of the commission, however, having the future development of the public prop¬ erty and interests in charge, to formulate plans from time to time best suited to the Avants -of the port, as well as to devise waj's to carry out the intent of the public under the large powers with which it is essential it should be invested in case the recommendations hereof shall be adopted. In the prosecution of the work of this commission a large amount of material has been collected, including maps, plans, reports and statistics relating to the commerce and harbor improvement of all the sea-ports in the world ; and as this material will undoubtedly be of value to the Harbor and Land Commission, Ave recommend that authority be given for a transfer of all the property in the hands of this Board to said commission. The conclusions reached in the foregoing may be sum¬ marized as follows : — S it m m a k t. I. Public Oavnership or Foreshore. — That a portion of the foreshore should forever be preserved in the ownership and control of the people, for uses and purposes such as the DOCKS AND TERMINAL FACILITIES. 123 needs of changing conditions may from time to time require, hut that it is neither necessary nor desirable that the entire foreshore of the harbor should be thus held ; on the contrary, a diversified ownership is believed to be healthiest, and there¬ fore the acquisition of certain parcels within the limits of the city of Boston, as hereinbefore described, is recommended. II. Elimixatiox of Extra Charges.—-That the close competition in the commerce of to-day requires the study of economy in every element and detail of the problem of cost in transportation, the elimination of all separate items and the advantaííe of calculatino; and makinsï through rates o o o ö without the disturbing eíiect of extra charges ; that the growth of the commerce of Boston during the past two decades has been mainly of such commodities and under such conditions as permitted the absorption of wharfage and other outside charges. III. Public not Private Capital required.—That the needs of commerce require increased accommodation and facilities at this port, at the lowest rate of charges ; that private individuals cannot fairly be expected to furnish these for such returns on investment as they would be willing to accept ; that the uncertainty of immediate returns is against large outlays by private individuals ; that private interests and not the public welfare is naturally and pro[)erly their first thought, and the making of this port a great com¬ mercial centre is a secondary consideration ; that public welfare demands the largest volume of trade at the least cost, — low, uniform and stable charges, first-class equip¬ ment, ample accommodation and abundant facilities at the lowest charge to the user. IV. Public Money Cheaper. — That public wharves, docks, landing sheds and equipment can be built with cheaper money by using the credit of the Commonwealth 124 DOCKS AND TEIDMINAL FACILITIES. than of individuals ; that the charges to the user need be enough only to pay a low rate of interest on the cost, the annual disbursements for maintenance, repairs and a sink¬ ing fund sufficient to reimburse the original outlay iu forty years. V. Good Results.—That Avise expenditures of public funds have been folloAved by good results abroad and else¬ where in this country, and there is no sufficient reason to doubt that similar results Avould attend a similar outlay here. VI. Private Property Rights. — That the growth and adjustment of trade on natural lines is too sensitive and too liable to be upset and depart elsewhere to justify interference, even with the hope of benefiting it ; that, therefore, the com¬ mission refrains from recommending interference with the ownership of improved private properties on the water front, but contents itself with recommending the acquisition of un¬ improved private property, and the improvement of public property on principles of systematic and uniform growth at such pace as needs may demand. VII. Owners of Private Wharves not injured. — That the groivth of local harbor, coastwise and Avarchouse business attendant u])on the increase of the city Avill create constant demand for private Avharves along the peninsular front, so tliat the owners thereof need liaAm no fear of cauI etfect from public oAvnership as herein limited, nor need the railroad companies apprehend injury froui that Avhich is more likely to be to them an enduring benefit ; the impetus to business of all kinds as a result of expanding the commerce of the port would more than oftset any disadvantage to any private Avharf owners from such building of public docks as is herein proposed. VIII. Probable Cost.—That the plans proposed can be carried forAvard by an expenditure of less than a million DOCKS AND TEKMINAL FACILITIES. 125 and a half of money, with distinct advantage to the port, to a point where further development may be delayed or tease without impairing the value of that which has ])een accomplished, and may be resumed at any time thereatter on the same or different lines, thus avoiding the inextricable complication of jdans contemplating the expenditure of many millions before results could be achieved. IX. CoMJiONWEALTH Ckedit.—That the needed money be borrowed on the credit of the Commonwealth, for thus can the cheapest money be obtained. X. How expended.—That it be expended in acquiring the foreshore hereinbefore recommended and in building a model dock on the Commonwealth flats at South Boston, and, when that shall be occupied, another, and then another, so long as the demand shall continue ; and thus would the investment be conservative in time and amount, and always be represented by market value. XI. By Whom. — That the powers of the Board of Har¬ bor and Land Commissioners be enlarged ; and, for the reasons hereinbefore stated, to it be intrusted all matters relating to the proposed improvements and the expenditure of the moneys. XH. Oliver Street Bridge.—That the building of a new bridge across Fort Point Channel at Oliver Street, to connect with Northern Avenue, would provide for a rail connection between the Commonwealth flats property and the northern railroads by way of the Union Freight Kail- way, and incidentally remove a considerable amount of traffic from the path of people who will use the new southern union station. XHI. Tracks at East Boston.—That the changes in O railroad tracks and terminals at East Boston, suggested for 126 DOCKS AND TEmiINAL FACILITIES. the purpose of eliuiinating grade crossings, are feasible, and as inexpensive as tlie nature of the problem will admit of, and are calculated to deal with the subject to the public sat¬ isfaction, in case nothing shall be accomplished under the provisions of Statutes of 1895, chapter 191. XIV. Absorption or Wharfage Charges.—That it would be for the interest of the commerce at Boston if the owners of railroad and other private wharves, following the custom successfull}^ established by the coastwise steamship lines at this port, would arrange, whenever possible, to have the ivharfage charge included in the freight rate, so as not O O O ' to appear as a separate item to the consignee or importer. XV. Car Floats.—That the use of car floats between the railroad and steamship whaiT terminals can be increased to great advantage, and thereby efiect a substantial saving- over the cost of transference by rail. XVI. SwiTCiîiNG Charges.—That switching charges made by railroads, when excessive, can be redressed by ap¬ peal to the Board of Kailroad Commissioners. XVII. Discrimination.—That discriminations within the jurisdiction of the Interstate Commerce Commission arc not subjects of profitable discussion or recommendation in this report. XVIII. Diiy Dock.—That all proper influences should be used to induce the Federal government to build an adcipiate dry dock at the Charlestown Navy Yard. XIX. Anchorage.—That the anchorage grounds in the upper harbor arc insuflicient, and tiiat means should be taken to increase those at Bird Island flats, and provide others elsewhere. XX. Water Basins.—That the Commonwealth should do all in her power to foster waterways and basins, wher- DOCKS AND TERMINAL FACILITIES. 127 ever the}^ can be utilized, whenever in the interest of econ¬ omy in transporting necessaries to the citizen. XXI. Outlet foe Noeth-west. — That Boston is a natural outlet by way of the lakes for the great north-west. This has been made evident by the volume of exports brought here through the agency of the railroads, working in conjunction with their lake and ocean lines. Individuals and corporations, therefore, interested in our growth, should continue unremitting efforts in the direction of causing the products of that vast territory, as fast as it may be settled and developed, to seek ocean transportation through this port. XXII. Eeee Poet. — That it is the purpose of the customs laws, as interpreted b}' the United States treasury department, to enable manufacturers to realize many of the benefits of free ports as established abroad, but without more data than at present in the hands of the commission specific recommendations would seem to be inadvisable. The commission embraces this opportunity to publicly ex¬ press a deep sense of its obligations for the assistance it has received in every quarter in prosecuting its investigations, especially to the State and Treasury departments at Wash¬ ington for the interest exhibited in forwarding the queries of the commission to the consuls abroad, and the unfailing courtesy ever accorded to all its requests ; to the Chamber of Commerce, the Associated Board of Trade and the Mer¬ chants' Association of Boston, for their contributions to the information sought for ; to the commissions, the boards, the chambers, consuls, merchants, officials and engineers the world over, for their ready responses with books, pamphlets, plans, letters and conferences ; particularly for the generous aid and courteous hospitality extended to members of this commission when visiting the many ports at home and 128 DOCKS AND TERMINAL FACILITIES. abroad ; and, last but not least, to the individuals who have appeared before the Board, personally and officially, and have given liberally of their valuable time and con¬ tributed freely of their invaluable information and experience to promote the objects of this inquiry. WOODWARD EMERY. J. R. LEESON. CLINTON WHITE. APPENDICES. [129] Appendix 1. BEPOET OF THE ENGINEER. [Váli REPORT OF THE EXGIKEER. To the State Board on Docks and Terminal Facilities. Gentlemen : —I respectfully present the following report of those engineering features, with railroad connections, which, among others perhaps, seem to be naturally connected with the proposed system of public docks for the port of Boston. About fifteen years ago Mr. James Alexander, then of the Cunard line of steamships, suggested the development of the East Boston flats, to which he gave the name of East Haven, and the building of a belt railroad. In accordance with this suggestion, surveys and esti¬ mates were made for a railroad, extending from East Boston through llevere, Chelsea, Maiden, Medford, Somerville, Cambridge, Water- town, Brighton, Brookline, Dedham and Dorchester to South Boston, at an average distance from Boston of about five miles. It was about twenty-five miles long to a connection with the Old Colony Railroad. It was intended for a first-class double-track railroad, passed either over or under every highway and railroad encountered, connected with every steam railroad by spur tracks with grades of one per cent., and was estimated to cost $2,921,855, or an average of about $125,000 per mile. This is exclusive of land damages and incidentals. It was supposed at that time that land would cost not less than $1,000 per acre, or, for a right of way five rods wide, $10,000 per mile. The maximum grade was one of 61.6 feet per mile between the Boston & Albany Railroad in Brighton and the Woonsocket division of the New York & New England Railroad in Brookline. Elsewhere there was no grade exceeding one per cent., and the maximum curva¬ ture was of six degrees. Could this scheme have been accomplished, it would have connected every Boston railroad with every other one, as well as with terminals at East Boston and South Boston, and that without great increase of haul over delivery at the stations of the respective roads. Since that time the business has crystallized into a more or less perfect system, under which each railroad has sought its own terminal location and fitted it up for its business in its own way, regardless of other railroads. [133] 134 DOCKS AND TERMINAL FACILITIES. At the present time the New York, New Haven & Hartford Rail¬ road seems to have settled down upon the South Boston flats. The Boston Albany Railroad has selected East Boston, with which it has a connection by means of the Grand Junction Railroad. This is most unfortunate, for it crosses at grade most of the important streets ill Cambridge, and all the freight and passenger tracks of the Fitch- burg Railroad and the Boston & Maine Railroad, save those of the Lowell system which lead directly to Boston, but including those which lead to the Mystic River wharves. The Boston & Maine Rail¬ road has terminals in East Boston, which it acquired through the Eastern Railroad, and others more extensive on the Mystic River, which came to it through its connection with the Lowell Railroad. Under existing circumstances little can be done except to suggest slight modifications and changes which may perhaps improve the situation. The New York & New Haven road may well be content, for it has easy access to its grounds, with the opportunity to purchase other grounds. The Boston & Albany is in the most unfavorable position, being between the other systems, and being obliged to cross one or the other of them in order to reach East Boston or South Boston. The most radical but costly plan with regard to the Boston & Albany would be to tunnel under Fort Point Channel, beginning at Tremont Street in Boston and ending on the further or south¬ easterly side of the New York & New Haven Railroad. The tunnel would be, going via First Street, about six thousand feet long, in¬ cluding approaches of about eight hundred feet at each end, with grades of three feet in one hundred, or three per cent. It is es¬ timated that it would cost for a single track about $2,000,000, and by its use all grade crossings and interference with passenger tracks would be avoided, and access obtained to the Commonwealth's lands in South Boston. Another simple and economical method would be to build a short bridge across Fort Point Channel, just above tlie present Broadway extension bridge. It would be about four hundred feet long, and is estimated for a single track. The tracks to connect it would leave the present Boston & Albany Railroad at Albany Street, and connect into the present tracks of the Old Colony Railroad, and by means of them into the tracks of the New York & New England Railroad by a.con¬ nection recently built. Such a piece of road and the bridge can be built for about $50,000, and a double-track connection would not exceed in cost $85,000. This, however, involves the use of its own passenger tracks for freight, and the crossing at grade of the pro- DOCKS AND TEEMINAL FACILITIES. 135 posed passenger tracks of the Providence Railroad division with freight trains. Another addition suggested is a connection between the Boston & Albany Railroad and the Watertown branch of the Fitchburg Rail¬ road. This connecting track would be about one mile long, and would require a bridge across the Charles River. It is on the site of the proposed belt railroad referred to, and passes through the grounds of the Watertown arsenal. If this location is not permis¬ sible, it can easily be changed to other land in the vicinity. The estimated cost for a double-track, first-class connection is $130,000, exclusive of land damages. With such a connection built, and proper arrangements made with the Fitchburg Railroad, that part of the Grand Junction Railroad lying between Cottage Farm and its connection with the Fitch¬ burg Railroad in East Cambridge could be abandoned altogether for through business. This being done, that part of the Grand Junction Railroad lying between Cottage Farm and Broad Canal in Cambridgeport could be taken up, thus relieving four most important avenues connecting Cambridge with Boston, namely, Massachusetts Avenue, Main and Harvard streets and Broadway, from grade crossings, which have been almost unsolvable problems for years. It would also remove one bridge from the lower part of Charles River, and relieve the Cambridge and Brookline bridge of a bad grade crossing. The other part of this road lying in Cambridge could be used as a stub, connecting with the Fitchburg Railroad at Bridge Street, and accommodating most of the manufacturing business of Cambridge- port and the butcheries of East Cambridge. Then, if a bridge be built at Cambridge Street, to avoid the present grade crossing at that point, this stub track could be operated with very little inconvenience or damage to public travel. It would be possible, even, to confine this business to the middle hours of the night or to early morning, and thus almost wholly eliminate the present delays and dangers con¬ nected with the operation of this railroad. There is another possible and promising connection between the Boston & Albany Railroad and the New York & New England division of the New York & New Haven road. By leaving the Boston & Albany at a point between Wellesley and Natick, called Lake Crossing, a line could easily be built up the Charles River and IMother Brook to Hyde Park. It could be built with very easy grades, and cheaply, as there is much low and swampy land along those water courses not useful for any other purposes. It will require about thirteen miles of new road. A route very nearly the same is 136 DOCKS AND TEEMINAL FACILITIES. alluded to in the late Rapid Transit Commissioners' report, and is there estimated to cost $600,000. (See pages 39 and 245.) Hyde Park being eight miles nearer Boston than the point of departure of this line from the Boston & Albany, the additional haul would be reduced to five miles. Even with this increased distance here, the Boston & Albany could by this route reach the wharves in South Boston with one mile less of distance than it can now reach its East Boston wharves by the Grand Junction Railroad. The Fitchburg Railroad is the most limited as to its terminal facilities. The Hoosac Tunnel docks and wharves cover but a small area, but its facilities are now so arranged that business can be done with great despatch and economy. There is no room for furtlier docks and wharves at this location, except it can purchase part of the Navy Yard. It is not for the interest of Boston's business nor of Boston's harbor that this should be done, nor is it likely that the government will ever consent to part with it. This road is most unfortunately situated in the matter of grade crossings, as its freight trains cross at grade all the passenger tracks of the Boston & Maine Railroad system except those on the Lowell division, as also the bridges from Charlestown to East Cambridge and to Boston. The only apparent opportunities for the Fitchburg Railroad to dispose of its surplus of business is either to join with the Boston & Maine Rail¬ road in the use of its Mystic wharf terminals, or with the Boston & Albany Railroad in the use of the Grand Junction Railroad to East Boston, or to establish a system of car floats. If the Boston & Albany should require the use of the Fitchburg Railroad tracks from Watertown for five and a half miles, it might reciprocate by granting similar use to the Fitchburg of the Grand Junction to East Boston for six miles. It is of little interest to public travel whether the Grand Junction be maintained between East Cambridge and East Boston, or be given up. The important grade crossing at Cambridge Street in Charles- town is in the slow process of elimination by the building of a bridge. The next most important grade crossing on this line is that of the Newburyport turnpike in Everett. This cannot long remain without a bridge. There is but one other important grade crossing on this portion of the Grand Junction Railroad save those in East Boston. Under a plan of Mr. Jackson, city engineer, by which it is pro¬ posed to abolish all grade crossings in East Boston except at Mar¬ ginal Street, he places the new location of the Boston & Albany and Boston & Maine railroads alongside of the Boston, Revere Beach & Lynn Railroad, and proposes a new tunnel. You have asked me if the Boston, Revere Beach & Lynn Railroad DOCKS AND TERMINAL FACILITIES. 137 location between its East Boston ferry slip and Trumbull Street were surrendered and assigned to the Boston & Albany and Boston & Maine railroads, whether there would be any engineering difficulties in rearranging the tracks and buildings of the two roads on their grounds between Marginal Street and the water. In accordance with this request two plans have been outlined, on which the tracks, freight houses and other accommodations of the two railroads have been rearranged with as little disturbance of present conditions as seems possible. It should, perhaps, first be stated that the Boston, Revere Beach & Lynn Railroad is possessed of two tunnels, witli a three-foot wall between them, and that each tunnel is thirteen feet wide and ample for steam railroad traffic of the standard gauge. On account of the manner in which the Boston & Albany and Bos¬ ton & Maine railroads approach East Boston, and the location of their respective grounds, it is unavoidable that the business of either road should cross that of the other at grade. Under the first of the two plans referred to this crossing is done in detail in the yard south-west of Marginal Street, by means of a ladder crossing and connecting with all the tracks of both systems. Under the second plan, the crossing is done in full trains, some¬ where east of the tunnels of the Boston, Revere Beach & Lynn Rail¬ road, as at present. This must continue as long as the Boston & Albany Railroad has its freight terminals at East Boston on its present grounds, or until the Boston & Maine shall choose a new site. I do not anticipate any difficulty in carrying out either one of the two plans referred to. The Boston & Maine system has suitable facilities for its present needs at the Mystic wharves and at East Boston, and is in a position to reach such further deep-water facilities as may be called for in the future at East Boston, such as wider and longer piers, broader docks, with deep water sufficient for larger steamships. The capacity of the railroads to do business from their present termini can be very much increased by setting up a system of car- float service. It is believed that this is the cheapest and quickest way of transferring cars. It does not involve any labor of impor¬ tance, for the cars are not unloaded of their contents. The New York & New Haven road now has an incline at South Boston and the Boston & Maine one at East Boston. This system can be extended and made substantially sufficient for the present if the Boston & Albany railroad build one at East Boston, the Boston & Maine one at the Mystic, and the Fitchburg one at the Hoosac Tunnel docks, 138 DOCKS AND TEEMINAL FACILITIES. where there is a questionable opportunity. Tlie extreme distance for floats to be run would be about two and a half miles between Mystic and South Boston, while the average would be about one and a half miles. The cost of the standing plant, such as is in use in East Boston, would be about $20,000. The cost of a scow, or float, to carry eight long cars or ten short ones, would be about $12,000. The cost of the entire live inclines or standing parts would be $100,000, and of a float to each incline $60,000 more, or a total of $160,000. All of this would not be needed at once, but only as business and necessity demanded. They should all be made alike, so that floats could interchange anywhere at any time of tide. The interest on plant would be about $10,000 per year and repaii's as much more, say about $20,000 per year for the five inclines, or $4,000 per year for each. The transfer of freight at New York and Brooklyn by floats is necessary and eflicienc for two reasons. The Hudson Hiver has to be crossed by all the business between the west and south and either of those cities, except such as the New York Central Railroad brings into New York City. The other reason is that the moderate rise and fall of tides in New York harbor of three or four feet is favorable to the use of floats. They can be used at all stages of such tides. In Boston the tides range from eight to twelve feet. The inclines in use at South and East Boston cannot easily and safely be used except between about half tide and high tide. This is an unfortunate limitation, and cannot easily be remedied except by an extension of the inclines by the addition of another span and float¬ ing tank with other macliinery, at a cost probably of about $25,000 at each site. With the present conveniences, and use for one half a tide, however, two hundred cars can be transferred in a day between South and East Boston. If fifteen tons be taken as the average load of each of ten loaded cars upon a float, we have one hundred and fifty tons of freight as one float load. The cost of towing is taken to be $10, and is the same whether the tow is for a long or short distance, if it be in the harbor. The empty cars have to be returned, at an¬ other charge of $10. The transfer of one hundred and fifty tons, therefore, costs $20, or about 14 cents per ton. If the cars can be returned loaded, the cost will be reduced to 7 cents per ton. It is assumed here that floats carry full loads. In addition to the tug there must be a locomotive with five or six empty flat cars in attend¬ ance at each end for loading and unloading the float. The length necessary for a half-tide plant is about one hundred and fifty feet and for a full-tide plant three hundred feet, and the breadth about fifty feet in eiliier case. DOCKS AND TEEMINAL FACILITIES. 139 One of the important questions in this discussion is as to the location of enlarged facilities in Boston harbor for steamships with proper connection with railroads, and near enough to the city to be convenient. There seems to be a tendency to larger ships than heretofore, in order to cheapen the transportation of freight. It seems to be wise to choose new locations, where piers 1,200 feet long and 300 feet wide, with corresponding docks 275 feet wide, can be built. The location should be as near to other business of this sort as is possi¬ ble, without destroying property now in existence and use, and where conveniences as to railroads and teams can readily be extended to the new work. Our attention is at once directed to East Boston and South Boston. At the latter place the Commonwealth has done a large amount of work along the line of such improvement, and several piers aud docks have there come into the possession of the railroads, either by pur¬ chase or construction. At East Boston the site suggested is in front of Jeffries Point, and extending into the bay easterly of this point. A rumor got about that the foundations back of Jeffries Point were very bad for the construction of such works as are proposed. It was deemed unsafe not to heed such rumors, aud therefore other soundings have been made. Six borings made south and south-east of Jeffries Point, and about half a mile from shore, showed a crust of mud, sand, gravel and stiff blue clay under the flats, extending down to an average depth of about twenty feet below mean low water. Below this crust there was found a soft blue clay extending down to eighty and one hundred feet below mean low water, before hard bot¬ tom was found. Then followed the question, can such works as are proposed be built upon such foundations. It is i)roposed to excavate docks having thirty-three feet of water at mean low water, in order to be sure to have thirty feet at extreme low water. It will be seen that such a dock must be cut down thirteen feet into this soft blue clay. It was known that the Boston & Albany Roilroad had had some experience with unstable foundations at their yards in East Boston. It was therefore determined, by permission, to make some borings there, and two were made, one on each side of their grain elevator. It was found here that there had been no crust, or that it had been removed. Soft blue clay was reached in one case at twelve feet and in the other at nineteen feet below mean low water. Hard bottom was reached in one case at sixty-three feet and in the other at seventy-nine feet below mean low water. This experience proved that such works could be built upon such foundations safely, though 140 DOCKS AND TERMINAL FACILITIES. at increased expense. The dock alongside of this elevator has twenty-seven feet of water at low water, and the sides of the exca¬ vations do not seem to cave in, though excavated into this soft blue clay for a distance of fifteen feet. The next question suggesting itself was, shall East Boston be abandoned, as too costly, in favor of South Boston, which seemed to be better. It was therefore suggested that some borings be made at South Boston, and two were made. One was made at about where the next pier south-easterly from Pier No. 4 would be likely to be built, and about the centre of it, and the other in the dock adjoining, south-easterly of this proposed new pier, and near its centre. The first boring showed a crust consisting of strata in the following order : mud, sand and shells, sand and silt, silt and peat very soft, and hard, firm silt and clay, down to twenty-four feet below mean low water. At this point soft bine clay like that at East Boston was struck, and continued down to one hundred and five feet six inches without reaching a bottom. At the other boring the same veins of silt, peat and shell were passed through, and a stiff blue clay was reached at twenty-five feet six inches below mean low water. At thirty-one feet soft blue clay was reached, like that at East Boston, and boring through it, was continued down to one hundred and seven feet without reaching a harder bottom. The three-foot vein of very soft silt and peat is more objectionable than anything found in East Boston. It seems, therefore, that there is very little choice between East and South Boston. They are about equally accessible by teams, tugs and lighters. It is not likely that a better and cheaper site for building can be found in Boston harbor without sacrificing some of the conveniences of the two places suggested. Respectfully, THOMAS DOANE. Appendix II. LETTERS OF HENRY W. PEABODY, JENNESS BROS., G. S. GREENE, Jr., WM. F. WHEATLEY. LUI] LETTBK FROM H. W- PEABODY. Henry W. Peabody & Co., Shipping Export and Import Commission Merchants, Boston, Dec. 9, 1895. WooDWAKD Emery, Esq, Chairman State Board on Docks and Terminal Facilities, Boston, Mass. Dear Sir: — Apropos of my testimony before your committee in regard to the present insutlicient wharfage and dockage facilities at this port for vessels other than those of regular lines, I beg to call to your attention the case of the steamer " Blackheath," arrived liere this morning with a cargo of 7,236 bales of sisal to my firm's consignment. AVe desired to store 5,000 bales and to ship off the balance, and have been working for the past week to secure a berth for the steamer, and found it impossible to accommodate her at any wharf in the harbor below bridges. We interviewed New York & New England, Boston & Albany, Hoosac Tunnel, National Dock and Warehouse Company, Fiske, Constitution, Lewis, Union and Long wharves. Six of these wharves could not even offer a berth at which to discharge. > One could provide room to discharge 2,000 bales, but could store nothing ; and there was so much other mer¬ chandise on the dock that no insurance was possible upon that cargo discharged. One could allow us to discharge 2,500 bales, of which they could store 1,500 bales, and one could store 2,500 bales, but had no stages with which to discharge the boat, nor could the steamer be worked except at certain positions of the tide. She could not, therefore, be discharged at any or all of the above-men¬ tioned docks, should she be sent to each of them in turn. Mystic wharf could store nothing, but offered to provide us a berth for dis¬ charging a greater part of the cargo, providing we would pay double the wharfage rates asked by the others. The only other alternative to us was to send her up to Boston wharf through the bridges. The New York & New England refused to authorize us to send any boat through their railroad draw of more than forty-one feet beam, and the "Blackheath" is forty-one feet six inches. We, however, suc¬ ceeded in getting her through by the aid of two tugs, although she scraped in so doing. [143] 144 DOCKS AND TERMINAL FACILITIES. Had this steamer, then, been of one or two inches more beam, she could not have been discharged in all Boston harbor, and storage provided for the greater portion of her cargo, even though we had a week's time in which to arrange for a berth ; and yet some of the warehouse people testified before your committee that Boston has at present ample facilities for all the commerce that might come to this port. Boston as a hemp centre has been growing verj' rapidly. The broker's circular of December 1 reported 18,694 bales of manila hemp afloat for New York and 45,048 bales afloat for Boston ; but it is obvious that, if proper wharfage and storage facilities cannot be provided in Boston, the speculators and western manufacturers will insist on their future purchases being diverted from Boston to New York. Yours truly, Henry W. Peabodt. LETTER FROM JENNESS BROS. Jenstess Bros., Truckmen, 27 Matthews Street, Boston, Aug. 23, 1895. Clinton White, Esq., Stale Board on Docks and Terminal Facililies, Boston, Mass. Dear Sir:—Yours of August '22 duly received. The informa¬ tion you have received in reference to the scarcity of storage is cor¬ rect. Tiie warehouses are completely filled, and we find it almost impossible to get them to receive wool from our teams. We have at the various freight terminals of the city at the present time over two thousand packages of wool which we are holding back, waiting for the warehouses to make room to receive them. One reason for this is the unusual amount of foreign wool imported this year and arriving at the same time of the arrival of the domestic wools. Tliere is very little (in comparison) going ont, as the mar¬ ket is quiet, so the result is that everything is blocked up at present. Yours truly, Jenness Bros. DOCKS xVXD ÏEKMiXAL FACILITIES« 145 LETTER FROM O. S. GREEXE, JR. Depabtment or Docks, Pier. A, î'oot op Battery Place, North Riyer, Office op the Engineek-in-Chiep, New York, Nov. 4, 189.5. WooDWAKD Emery, Esq., Chairman Stale Board on Docks and Terminal Facilities^ Boston, Mass. My Dear Sir : — It seems to me obvious that it is most desirable that commerce should be put to as little expense as possible in regard to port charges, wharfage and dockage ; that, as ports, wharves and docks require a large expenditure of money to furnish and provide them, the cheaper the money expended upon them the less the port charges, wharfage and dockage can be and afford satisfactory returns. The cheapest money is that of the State, therefore its money should be used to provide ports, wharves and docks. If private interests build, own and control ports, wharves and docks, they not only are built with high-priced money, and therefore necessi¬ tate high port charges, wharfage and dockage, but private interest always demands the greatest possible return for its money, and is ever striving to put upon commerce, or tratlic over its property, all the charges it can possibly bear in the way of wharfage and dock charges. Selfish interest would doubtless oppose public docks in a port where there are private docks, lest competition should perhaps in¬ jure the private interests; but the people and the public, the vast numbers of producers and consumers, would certainly be benefited by low port charges, wharfage and dockage. It seems to me, also, very desirable that you should first adopt or reject the above. If you reject it, then the matter would drop. If you accept it, then you are ready to proceed with propositions as to what should be done. Possiby, however, you may desire to consider what can be done, if j'ou accept the above, before accepting it. In that case, you have a large field before you. Very truly yours, G. S. Greene, Jr., Engineer-in-Chief. 146 DOCKS AND TEKMIKAL FACILITIES. LETTER FROM AVM. F. WHEATLEY. The Baltimore Corn and Flour Exchange, Chamber of Co-mmerce Bitlding, Office oe the Secretary, Baltimore, July 16, 1895. Mr. Clinton AViiite, Slate Board on Docks and Terminal Facilities, Boston, Mass. Deah Sir: — Your esteemed favor of 28tli ult. reached me iii due season, and its contents have been carefully noted ; and replying thereto I beg to submit ; -— 1 'nder authority of the State of Maryland, the mayor and city council of Baltimore control the building of all wharves. They are now governed by the lines laid down by the United States Advisory Board of 187G as to their extension into the harbor. The water iront of main harbor, measured on pier-head line, exclusive of United States projierty at Tort Mellenry and at Lazaretto Point, is 32,200 linear feet. About 1,500,000 square feet between bullthead and pier-head lines is occupied bi* wliarves. 'fhc Baltimore & Ohio Railroad owns or controls 3,000 iiad of front on pier¬ head line and tue Northern Central (or Pennsylvania Kailroad) about 1,200 feet. .As to the question of private ownership, I am clearly of opinion that iirivate ownership of wharf (iroperty is not so advantageous to a coininnnity as ownership by the city and by the railroads. Tlie latter naturally push all their energies towards developing their carrying inisiness, and utilize their water-front property chiefly to that end. profit upon their wharf property entering but little into their calculations. The city can make a uniform and low rate, and throw its wharves open to every one, while private owners are apt to use such property for their own business only, charging to competitors a rate in excess of what they ought to pay. As to legislation affecting the ownership or regulation of the water front, or publications that give the area of docks and wharves, this DOCKS AND TEmriXAL FA( ILITIES. 147 office lias no information, and I am therefore unable to advise you. But I am sure that an inquiry directed to His Excellency P>ank Brown, governor of Maryland, or Hon. h'erdiuand C. Latrobe, mayor of the city of Baltimore, will receive a prompt and affirma¬ tive response. Very respectfully, Wm. E. Wiieatley, Secretary. Appendix III. EEPLIES TO CIRCULAE LETTER, AND INFORMA¬ TION FROM OTHER SOURCES REGARDING FOREIGN PORTS. [149] EEPLTES TO CIECULAR LETTER, AND lAFOEMATIOA FROM OTHER SOURCES REGARDING FOREIGIi PORTS. The following circular letter was prepared by the Board and forwarded to United States consuls, harbor boards, port ofhcials, merchants and individuals at the world's principal sea-ports. Owing to rules governing the consular service, instructions were sent by the State department at Washing¬ ton to the consuls, requiring replies to be made direct to the department, all of which were immediately forwarded here for perusal and the making of copies. The publication of all the reports would make an unwieldy volume, consequently those only have been printed which will afford the most information on the questions under consideration, and even these have been partially condensed. It is fitting here for the Board to record due acknowledgment for the unvarjdng courtesy and great consideration of the State department. Boston, June 1, 1895. This Board is coustituted, as by the enclosed statute more fully appears, to inquire if the public ownership or control of docks and wharves in Boston is likely to prove advantageous to the public welfare. Information as to the extent to which the same has been adopted elsewhere, the reasons therefor and the results therefrom, will be a manifest aid in solving the problem. Increased facilities in any one port are helpful to the world's commerce, and it is from this point of view that the great favor of a reply to the following queries is requested : — 1. To what essentials do you attribute the success of your port in compe¬ tition with other rival ports P 2. To what extent do the physical features of your harbor enter into its success ? 3. To what extent do the management and control of the docks, wharves or quays afl'ect its success ? [151] 152 DOCKS AND TEliMINAL lAVCILTTIES. 4. To what extent does the ownership of the docks, wharv(;s or quays affect its success P 5. Is the ownership or control public or private, either wholly or partly ; and, it' partly, what is the mode of participation? 6. If the use of the docks, wharves and quays is regulated by a board ot control, in what manner is it appointed or elected ? IVhai are the rules and regulations? IVill you enclose a copy? 7. Have [u'ivate ownership and control of docks, wharves and quays at your jiort been interfered with by State or municipal authority; and, if so, for what reasons and under what legislation, if an}'; and to what degree have the results been Ixiueficial, or otherwise? 8. IVhat commoi'cial advantages, if any, does public ownershi]) give over private ownership of docks, whai'ves and (piays? 9. If public ownership exists, state the terms arranged for the satisfaction of former owners, and how and at what rates were the needed funds secured ? 10. Does the principal part of the revenue of the docks or quays come from charges on the vessels, or the cargoes, and which pays the landing charges ? 11. Have you direct railroad connections with your docks or piers from main lines, so that vessels can discharge and receive freight direct from trains? 12. Have you a local railroad connecting main lines with docks ? If so, by whom is it owned and controlled ? What is the basis of its tonnage charges or freight rates ? 13. How much of your success do you attribute to your railroad connections ? 14. Have )0U any system of lighterage at j-our port, and what are its advantages and charges ? 15. What terminal and distributing facilities do(^s your j)or( imsse.ss over other comparatively similar ports ? 16. Have you knowledge of any port where public funds ha ve been used to build docks and other terminal faciliti(!s, and the expenditure has, or not, l)ccn warranted by results? 17. What is the chief staple of the traffic ae your port? 18. Have you any information in the lino of the foregoing inquiries, other than that which you have already given? If so, will you please state it generally or specitically, as is convenient ? DOCKS AND TERMINAL FACILITIES. 153 ANTWERP ( Belgium). [Condensed statement.] Antwerp, the principal port of Belgium, is situated on the river Scheldt, about 60 miles from its mouth, Avhere the river is about 1,500 feet Avide and 30 feet deep at low water, thus atfording ample accommodation for the largest class of vessels. The banks of the river are made available by the construc¬ tion of a quay, alongside of which vessels drawing 28 feet of water can load and discharge. Upon this (piay are sheds 150 feet in depth, connected by four lines of raihvay tracks with the railroad terminals of the port. There are also ten floating, or Avet, docks, comprising a quayage length of 33,500 feet and a Avater area of over 2,000,000 feet, e.xcavated out of the solid earth, beside which there is a large dock for the accommodation of lighters and smaller craft, Avhich traverse the, canals lead¬ ing into the interior and carry in the course of a. year an enormous amount of freight. These docks are admirably fitted up with the latest appli¬ ances for the rapid handling of cargoes at a minimum cost. Ample storage facilities are provided and all docks haA^e complete railway connections. There are ten dry docks at AntAverp, the largest of Avhich will accommodate vessels 425 feet in length. Up to the present time there has been expended on the public works in connection Avith the dock system at the port about $25,000,000. The control and direction of the ])ort are vested in the city council, composed of thli-ty^-onc members. The imme¬ diate supervision is in the hands of officers responsible to the council, on the same general lines as ymblic Avorks in this country arc managed. Port charges, lighterage, pilotage and all other expenses attending the shipy)ing business are fixed by the manage¬ ment, and have been changed from time to time to meet the competition of rival j)orts. The railroad facilities at Antwerp, and, in fact, of all Belgium, arc of the first order. A majoilty of the lines are 154 DOCKS AXD TER:MI\AL FACILITAS. owned by the goveniiricnt, and all of them are vnider govern¬ ment control. Belgium is traversed by two large rivers, the Scheldt and the Meuse, beside several smaller ones and a number of canals. The heavy and coarse goods, like lumber, iron, grain, cotton, etc., are largely transported by water. Antwerp is in reality supported by its great transit busi¬ ness ; its direct importation re})re.sents i)ut a small proportion of the business of the ])ort. A general idea of the N'olume of business is given in the following table, showing the num])er of arrivals and the total tonnage of the vessds during the last ten years : — Number of Total TEAR. Vessels. Toonage. ; YEAR. Vessels. Tonnage. 1885, .... 4,860 3,492,934 1390, . 4,532 4,517,698 18S6, .... 4,726 3,521,229 1891, . 4,461 4,693,238 1887, . = . . 5,022 3,801,952 1892 4,321 4,500,091 1888, .... 4,823 3,974,320 1893, . 4,418 4,692,211 1889, .... 4,356 4,050,549 1894, . 4,640 5,008,983 In regard to the ownership of docks and wharves at Ant¬ werp, the following is from a letter of Mr. G. Koyers, chief engineer of public works : — So far as I know, private ownership does not exist on tlie conti¬ nent ; in regard to wharves, (piays, etc., these are held by the au¬ thorities for the benefit of the public. The coast line, the navigable streams and rivers, all belong to the government and are under Its control. Permission is never accorded either to private lii-ms or to public companies to exploit these for their own particular ends or benefit. In all such matters public utility and public convenience alone are taken into consideration. Not only is a navigable river nearly always appro[)riated to the public service, but the bank, or towliig path, Is likewise regarded as being government property. Therefore, speaking generally. It m.a3' be said that private ownership does not exist here, either in regard to the stream itself or¬ to the laud immediately adjacent thereto. For the same reason, prl- DOCKS AND TERMINAL FACILITIES. 155 vate ownership in docks, wharves, quays, etc., here is uukiiowu, and this could not be otherwise. It might happen that a concession for the appropriation of land, either riparian or on the sea-coast, might be granted by the govern¬ ment to individuals. But this is rarely the case ; and, in fact, I know of none which have been important or which have met with success. I recall, however, one such concession, which was made in a neighboring'country. It was for the construction of a canal from Amsterdam to the North Sea, with a port at Ymuideu, and docks, basins, etc., at Rotterdam (Feyenvord), on the left bank of the Maas. This enterprise wholly failed, and the whole of the works reverted to the Dutch government and to the city of Rotterdam respectively. The reason why private enterprise, based, as it is, on a temporary concession and working with a fixed tariff, does not find favor here, is doubtless due to the fact that it has invariably to compete against governmental tariffs. The French, Dutch, German, Italian and Spanish sea-ports are in the hands of public authorities, who are tiie owners of the land and who administer the revenues. There is competition between the ports themselves ; and, of course, private competition is wholly out of the question. In fact, as I shall pres¬ ently show, the authorities have not only the means of raising the capital necessary for the execution of public works at a lower rate of interest, but whenever they see fit, and invariably they do so, they can forego the profit directly accruing from such capital. Thus it is, as I have already stated, tiiat the question whether a port can be l)etter administered by private individuals or by public authorities never arises. In discussing the matter, however, from a general point of view, one can always suppose that the question does arise ; and it may be asked if all ports cannot be joint-stock or private enterprises, or carried on under concessions which, though permanent, would give them the same character. Then, in comparing them, they would all be on equal footing, and no longer, as at present, on one about which no difference of opinion can exist. Would this be an advantage? That is the (luestion. We must first of all note that the government of nearly every country, and more particularly that of Belgium, eujoys a large credit. The rate of interest on public loans here is 8 per cent., and Belgium public funds are quoted above par. The city of Antwerp is able to borrow at 3.27 per cent., redemption in ninety years included. Now, ill private industrial enterprises the capitalist is not content with 156 DOCKS AND TERMINAL FACILITIES. such a low rate of interest, deuuiudiug, in fact, the dotible of this return. The capital engaged in the administration of a sea-port is neces¬ sarily very large. Speaking of Antwerp only, which has a tonnage, at entry, of 5,000,000, the cost is, in round numbers, 150,000,000 francs, or nearly 5,000,000 pounds sterling. This sum, calculated at 3 or per cent., necessitates a tax of only about 1 franc per ton on every vessel entering the port. But if the port were a specula¬ tive enterprise, then, for reasons before stated, this tax would not be lower than 1 franc 80 centimes per ton. It is true that private capital would thus find an investment, which is now looked for elsewhere, either in State or municipal loans, and this, perhaps, would be an advantage for the capital¬ ists. But with the present system the advantage is in favor of the consumer of the produce which passes through the port publicly administered. It is also to be remarked that it is absolutely necessary tiiat Euro¬ pean ports should be able to cover the interest on the sums engaged in the construction of the works. But competition is causing the tariffs to be lowered everywhere below the rate which should ,be paid on capital, and this lowering of tariffs is causing trade to be diverted from one port to another. By sucfi means only the public administration, notably that of Antwerp, is able to attract and to maintain a fair share of business ; and, if tliis system does not leave a fair margin of profit on the cost of construction, it has its compensation in the increased activity which the authorities are able to give to the working classes. If, therefore, a municipality make but a small profit, or even if it lose money, owing to the low rate of interest returned on tiie capital employed, it will find sullicieut compensation in the increase of commercial activity of its population and of the ratable value of property. Antwerp just now gives constant employment to 30,000 workmen. It must also be considered that no European port in these daj'S, taken separately, could continue to exist under the system of private ownership; nay, many of them could not be opened at all, or at least would not be capable of further development. To give one example : Antwerp, in 1830, owing to political circum¬ stances, both of the past and of recent date, was almost lifeless, although she had been highly prosperous in the fifteenth century. From this epoch the successive development of her mailtime instal¬ lations had necessitated enormous pecuniary sacrifices, which have at DOCKS AND ÏEK.MINAL FACILITIES. 157 length borne fruit, but which would have discouraged, if uot ruined, all private enterprises. From the foregoing, then, we may deduce the following : — 1. The advantage of public ownership lu docks, basins, wharves, etc., may be found (a) in the minimum rate of interest on the capital necessarily engaged ; (&) in the possibility of diminishing the amount of direct receipts, with a view to struggle against com¬ petition, the compensation being found iu the enhanced commercial prosperity thus created ; (c) to the preference which a public admin¬ istration can and should give, cœteris perihus, to a large traffic, whereas a private company, from its own particular point of view, would prefer, and with reason, a less traffic, but with more remun¬ erative rates ; and, (d) lastly, the impartiality and kindly protection which should inspire a properly organized public body. 2. Owners of private property, or persons to whom concessions have been made, have not been able, at least as far as I know, to defend any opposite theory. 3. An important element of prosperity is ever found in being able to reduce port charges, as this leads to more successful com¬ petition. Reductions, such as have already been made and such as will be made hereafter, would have been impossible with individuals or with companies, since not only is the rate of interest on loans very low, but there is no real necessity to cover it by the amount of actual receipts. 4. The development of the port of Antwerp is solely due to the intervention of the public authorities (the State and the town) ; and one may fairly assume that no private company could continue to exist under the severe competition actually existing, nor could it have rescued the port from the lifelcssness into which in 1830 it had fallen. One may be permitted to tliink, however, that such a result would not have been wholly impossible if all other European ports, in competition with Antwerp, had also been administered by private enterprise. I am afraid that these replies will not present to you that interest with which you regard the (questions I'aised. As my knowledge of the subject does uot go beyond the question of public ownership, from this point of view only have I been able to treat it. Gr. Royf.ks, Chief Engineer of Public Works. 158 DOCKS AND TEEMINAL FACILITIES. AUCKLAND (New Zealand). [From the report of John' D. Connolly, U. S. Consul.] Ansiver to Question Xo. 1 : Auckland harbor, being remarkably easy of uavigation, readily accessible at all times of tide and weather, haY'iug ample deep water at entrances and in harbor, has no rival port to enter into competition with, being practically the natural port for discharging and shipment of imports and exports for all the northern portion of New Zealand. It is, without exception (a fact which is admitted by all compe¬ tent authorities), the best harbor in the colouj-, and has an anchor¬ age area, with deep-water berthage, sutflcient to accommodate all the fleets of the world at one time. It is completely land-locked and sheltered from all winds, and is the only port of call and departure in New Zealand for the San Francisco mail steamers, consequently it possesses mail advantages beyond those of all New Zealand ports. The port is connected by telegraph with the world's telegraphic sys¬ tem. A larger amount of tonnage enters and departs than in any other New Zealand harbor, and Auckland heads the list in customs returns for the past year (1894). Having ample shed and wharfage accommodation, trans-shipments of cargo for coastal ports can be effected as cheaply as in any other port in New Zealand; and, owing to the geographical position of Auckland and its connection with the ports on the west coast of New Zealand by Manukau harbor, goods can readil3' be trans-shipped bj' either the east or west coasts of the island. By providing terminal facilities and graving dock accommodation for repairs to vessels of all sizes. The Auckland dock is 312 feet long, C5 feet wide and has 13J feet of water on sill. The Calliope graving dock is 525 feet long, 100 feet wide and has 33 feet of water on sill. An ample, cheap and wholesome supply of fresh, pure water for shipping has been provided. There are 14,000 feet of berthage accommodation, with a doi)th up to 2.) feét of water. The shed accommodation is very extensive, provision being made for over 20,000 tons of cargo. The harbor and a])proaches are amplj' ])rovided with powerful lights, and all channels and shoals are clearh' and adequately marked by buoys and beacons. The climate is mild and equable, and there is an absence of gales of wind or storms to cause damage to vessels or interfere with shipping work. The port has a largo and cheap supply of kauri pine and other valuable timbers, for use and for export, and very large and increasing quantities of locally produced coal, of good quality and cheap, readily available for shii)piug or for manufactures. DOCKS AND TEEÍíIINAL FACILITIES. 159 Answer to Question No. 2 : Aucklaud liarboi" is an extensive land-locked estuary at the south¬ ern end of Hauraki Gulf ; the inner harbor is fifteen miles long, with ample deep water. There is sufliciently deep water at entrance to allow vessels of any tonnage or draught to enter the port at all times of tide and weather, and the harbor is so sheltered through¬ out that vessels are not prevented from entering, bertliing or leaving the port by gales of wind. The success of the harbor is increased by the contiguity of the Manukau harbor on the western side of the island, situated about seven miles distant, connected by rail, there'by readily allowing tratlic to be diverted to either the east or west coasts, as may be found most convenient for trade. The natural advantages of tiie harbor and its entrances and surroundings foster and find em¬ ployment for the largest fleet of small vessels belonging to any port in the Australian colonies. The harbor's success is still further increased owing to its being the nearest port to the Pacific Islands, hence the trade and advantages therefrom are enjoyed exclusively by this port. The harbor being about two da3'S steaming nearer the American Continent than any other New Zealand port has no doubt much enhanced its prosperity. Aiistner to Qxiestion No. 3 : Iljr the management and control of the harbor, docks, wharves, piers, etc., being vested in a Board,—a local body, composed in a great measure of representatives elected by the citizens of Auck¬ land and surrounding towns,—mercliants, ship owners and those interested in shipping matters having also special representatives, thereby ensuring skilled, economical and ellicient management. Answer to Question No. -t That, as the management and control are vested (as pei' replj» to (Question fl) in a local body, the interests of the pulflic are more readily protected, and any suggestion or alterations as to charges, management or of any other detail can be at once inquired into by the Board (or its committees), which meets each alternate Tuesd.ay for the transaction of business. Answer to Question No. ,5 .• The Board owns all the public wharves and graving docks in the liarbor, and has the sole management and control of same. The 160 DOCKS AND TEEMINAL FACILITIES. Board has very large endowments extending along the foreshore tipon both sides of the harbor. In fact, all the harbor excepting the deep-water channel in the middle of same is tlie propeily of this Board, held direct from the Crown. All wharves, reclamations and structures of every description are therefore erected upon the prop¬ erty of, and are under the control of, the Board. All wharves, whether (as in the case of timber mills) erected for private enter¬ prise upon reclamations, pay the same rates, and all dues and charges exigible upon public wharves are levied upon such wharves. Tiiere are no wharves in the harbor except those under the control of tiie Board, and, owing to extensive reclamations having been made by the Board upon the foreshore immediately in front of the city and leased in allotments, a very handsome rent roll lias been created, which relieves shipping and merchants from extra rates being levied upon shipping or upon goods landed. The endowments belonging to the Board are very valuable, and must in the days to come be a very prominent factor in the success of the Board and consequent advantage to the interests of the port and the public. This Board has endowments far exceeding in value and extent those of any other local body in the Australian colonies. Answer to Question No. 6 : The Auckland Harbor Board is constituted by an act of tlie New Zealand Parliament, entitled " The Auckland Harbor Board Act, 1885." Two members are appointed by the governor of the col¬ ony ; four members elected by the borough council of the city of Auckland ; one member elected by each of the borough councils of Parnell, Devonport and Birkenhead (adjacent towns) ; one member elected by the Auckland Chamber of Commerce ; and three members elected by and out of persons who have paid to the Board the sum of three pounds during the j-ear preceding election, and the persons whose names appear in the register book of shipping at the cus¬ tom house at Auckland as owner or part owners of vessels npon date of election. Elections and appointments are biennial, each member holding ofllce for two years, and being eligible for re-elec¬ tion or appointment. Anstver to Question No. 7: There is no private ownership or control of docks, wharves and quays in tliis port ; the Harbor Board owns and controls all wharves, docks, etc., as above mentioned, on behalf of the public. The value of the Board's properties is £663,228. DOCKS AND TERMINAL EACILITIES. 161 Answer to Question No. S : The Auckliind Harbor Board has full and sole control over all cargo landed upon wharves, and power to levy charges upon same. It manages and controls all storage of goods in sheds, removes and despatches trans-shipment cargo, and manages all matters relating to docking of ships ; and, as the Board is not a trading body, it manages all matters solely for the benefit of the public. The rates for goods and shipping are regulated in such a manner as not to bear too hard upon those interested, so long as the charges levied, together with the rents from reclamations, are sufficient to cover expenditure. The Board does not seek to make any profit, and all accumulations of money from every source are returned to those who paid it, in the shape of increased accommodation and appliances for the benefit of trade. The law does not allow any funds derived from levies upon shipping or goods in the harbor to be expended for any other than shipping purposes, charges being levied equally upon all classes of goods and equally upon all individuals affected thereby ; any favoring of particular lines of trade is avoided, and anything approaching favoritism is effectually prevented ; and, as the Board is at all times accessible for complaint or suggestion, the public good is carefully studied, and there cannot be any doubt but that the con¬ trol of such important matters as harbor and dock dues and charges and shipping matters generally, being under the direction of a public body, is a great boon to the community. Aiisioer to Question No. 9: Question practically answered in reply to No. 8. Ansicer to Question No. 10 : The direct answer to this question is by taking the revenue of the Board for the past year and subdividing it under the several headings, showing the amounts of revenue derived from rents, from goods, from shipping charges, and for the use of appliances and miscellaneous matters, as follows : — £ d. Rents, 10,161 10 0 Goods, wharfage, import and export, . . . 15,216 I 5 Shipping charges, wharfage licenses, port charges, harbor master's fees, dock dues, pilotage, . . 6,464 1 1 Use of appliances, etc., crane dues, weigh fees, use of sheds, vehicle and cab licenses, etc., . 1,673 11 3 Interest, 200 0 0 Total revenue, 33,74A 10 9 162 DOCKS AND TERMINAL FACILITIES. All shipping- charges are iuvariably paid by ships, and all other charges by consignees of goods and those using the appliances provided. Ansicer to Question No. 11 : Yes. The railway wharf, owned by this Board, has rails laid upon it to ship's side, and ample shed accommodation is provided at rail. Frozen meat, timber, coal, etc., are shipped direct from rail. Aiisicer to Question No. 12 : No. All railways about Auckland are owned by the government of the colony, and the railway wharf is used by the government free of charge. Answer to Question No. 13 : The railway brings a certain amount of coal, timber, wool, etc., from the interior for shipment, as stated in reply to Question 11. Auckland, however, is not dependent upon railway for landing or handling of cargo, as in some of our New Zealand ports; and, with the exception of large lines for manufacturing purposes, which are taken some distance ont of town, all Auckland cargo, owing to the short distance from wharf to store, is dealt with by dray traflic. Trans-shipments to west coast are forwarded to port of trans-shipment by rail. East coast trans-shipments are dealt with on <,¿ueen Street wharf. An,sicer to Question No. 14 : Owing to the depth of water at the main wharves, and ample berthage accommodation provided, vessels of every description fre¬ quenting the port are provided with accommodation alongside the wharves, and, excepting for the lauding of gunpowder or explosives (vessels carrying which are not allowed to berth at any wliarf until such explosives are lauded), no lighters are used for shipping or dis¬ charging purposes in this port. An.swer to Question No. 1,5: Auckland harbor is not a bar harbor ; has ample depth of water in entrances to harbor and alongside wharves for all classes of vessels lo enter and berth at any time of tide or in any weather, protection of vessels from damage by heavy weather, ample berthage and shed DOCKS AND TEEMINAL FACILITIES. 163 accommodatiou for traus-shipineDt of cargo, all facilities for distribut¬ ing cargo with despatch, economical and etiicient appliances for dis¬ charging and handling cargo, and lower rates of charges than any other port in the colony. The aim of the Board has been to ¡)rovide all requisites for shipping business at the minimum expense to the public. Ansicer to Question No. 16 : Patent slip was provided in Wellington, and government has for many years had to guarantee and pay interest on cost of same. Slip not available for larger class of vessels. Napier : a large expenditure has been made for breakwater, but up to the present same is not available for shipping purposes for larger class of vessels. Lyttleton ; breakwaters were constructed by provincial government, and handed over to Lyttleton Harbor Board as an endowment ; but without these breakwaters Lyttleton harbor could not accommodate shipping as it does at present. Graving dock at Lyttleton has been constructed by Lyttleton Harbor Board, but does not directly pay interest upon ex¬ penditure. Timaru : large sums of money have been expended upon breakwater, and large steamers have been berthed within breakwater. Oamaru : large breakwaters have been constructed, but so far have proved unsuccessful, as the harbor revenue is now being dealt with by a receiver, for and on account of the bondholders. In Otago harbor (Duuedin) enormous expenditure has been incurred in making a channel about seven miles long to Dunedin, and the Board has incurred a great amount of debt, which necessitates the levying of very heavy charges, to the detriment of the trade and com¬ merce of the port. At New Plymouth a very large expense was in¬ curred in constructing a breakwater which has proved a failure. The attempt to make artificial harbors in this colony, in contradistinction to the ports having natural advantages of shelter and deep water, has invariably proved to be beyond the means at the command of the projectors, and has, to say the least of it, not been successful in New Zealand ports. The Auckland Harbor Board built two graving docks at a cost of some £209,000, and directly these docks may be said not to pay ; but when it is taken into consideratiou that a terminal port of any importance must of necessity provide dock accommodation, the direct revenue from the use of the docks is not the only item to be considered. If the providing of ample dock accommodation is the means whereby shipping traille is directed to the harbor, —which is undoubtedly the case in this instance, — the indirect profit is in money actually earned for using the docks, more particularly when 164 DOCKS AND TERMINAL FACILITIES. (as in Auckland) the dock dues are designedly reduced to the lowest possible charge, in order to encourage use of same. It may be said that dock accommodation is as necessary to a harbor as streets to a city ; and, although immense sums of money are spent in streets, directly the streets do not pay ; so with graving docks, although dock dues do not pay interest of cost, yet indirectly the use of same causes a deal of revenue to be earned which would otherwise be lost, and no harbor can be ranked as a first-class harbor which lacks dock accom¬ modation. In the case of this Board the charge for interest upon cost of construction of graving docks may be fairly said to be pro¬ vided for by the rentals arising from reclamations, and such charge for interest, therefore, is met by revenue other than that produced by levies on goods and shipping, but is the proceeds arising from utilizing endowments. Ansioer to Question No. 17 : Imports : general merchandise, salt, mining and agricultural ma¬ chinery, etc. Exports : principally timber, kauri gum, gold, silver, wool, hemp, skins, leather products, frozen meat, canned meat and fish, coals, ores. Island produce, shells, copra, etc. U. S. Consulate, Auckland, Oct. 30, 1895. BELFAST (Ireland). [From the report of James B. Taney, U. S. Consul.] Replying to department despatch, dated July 12, 1895, containing instructions to furnish information upon the subject of docks and wharves of this port, I beg to report as follows : — This prosperous city is located at the head of the Belfast Lough, and its harbor was originally at the mouth of an insignificant stream called the Lagan. As the city thrived and grew, the demands of com¬ merce exacted larger and better shipping facilities than the natural and very restricted boundaries and conditions of the port afforded. The record has proved that the energy and commercial aptitude of the people were equal to the emergency. Owing to tlie restrictions and annoyances arising from private own¬ ership of docks, quays, etc., necessary enlargements and improve¬ ments of the port were dillicult and slow. These serious drawbacks were finally overcome through imperial legislation, which was sought DOCKS AND TERMINAL FACILITIES. 165 and conferred upon the city. As far back as the end of the last century, power was given to place the management of the harbor under control of a public Board, to be known as the Belfast Harbor Commissioners, but not until the act of Parliament in 1847, giving this Board power to borrow money, condemn and acquire land, etc., did the development of the harbor keep pace with the growth and demands of commerce. From a small port, with little depth and less accommodation for trafHc, Belfast harbor has been improved and extended until it is among the finest in the kingdom. The largest ships and steamers which ply the Atlantic can sail up to the quays and docks without waiting for tide. From a registered tonnage of 31,475, in 1837, it has increased to 152,174; and from 288,143 tons cleared in 1837, it has increased to 2,085,953 tons in 1894. Its docks, quays and basin walls are constructed mostly of granite and upon the most improved plans; they represent a lineal quayage of 21,114 feet. It is estimated that in round numbers $15,000,000 have been ex¬ pended in improving and enlarging the harbor. All this sum has been borrowed at rates of interest ranging from 5 to 3J per cent. In the beginning, when the work of the Harbor Commissioners was largely experimental and money scarcer than now, the rates of interest were highest. At present all the money needed can be borrowed'at 34 per cent. Harbor stock on that basis is at llj per cent, premium. The amount of outstanding indebtedness is about $5,800,000. The receipts from all sources for 1894 were $636,500 and the expenditures in round numbers were $523,000; of this sum, $125,000 were devoted to harbor improvements, about $228,000 were applied to interest on bonds, stocks and loans, and $25,000 to a sinking fund. After paying current expenses, an unexpended sur¬ plus of $113,000 was carried forward to the year 1895. The members of this Board of Commissioners are selected from the best representative citizens of Belfast, generally manufacturers, merchants, ship owners and men who are deeply interested in the prosperity of the city, and who freely give much time and attention, without pay, to the important and responsible duties imposed upon them. After a most careful inquiry, I have found no element of the com¬ munity dissatisfied with the manner in which the trust is executed. Indeed, the ability and integrity of the Board and the scheme or plan under which it works and by which it is controlled are sources of pride, and are frequently and favorably commented upon, —the jus¬ tice of which, 1 may say, is demonstrated by figures and facts. To the qualifications in the act imposed upon electors is ascribed 166 DOCKS AKD TEEMINAL FACILITIES. one of the main causes of the success of the trust. It is claimed that these qualifications practically prohibit all illiterates from par¬ ticipating in the election of Harbor Commissioners. Both sexes are eligible to vote, providing they reside within twenty miles of the city and come within the scope of the subjoined schedule : — Section XV. Owners of vessels or of shares in vessels shall be entitled to vote according to the scale following (that is to say) : — For a vessel or vessels, or a share or shares in a vessel or vessels, of lil'tj' tons and less than one hundred tons, net register, 1 vote. Of one hundred tons and less than two hundred tons, net register, 2 votes. Of two hundred tons and less than four hundred tons, net register, 3 votes. Of four hundred tons and less than seven hundred tons, net register, 4 votes. Of seven hundred tons and less than one thousand tons, net register, Ô voles. Of one thousand tons and upwards, net register, 6 votes. Section XVI. Occupiers rated in respect of premises shall he entitled to vote according to the scale following (that is to say) : — Of premises of twenty pounds (f97.3;>) and less than fifty pounds (1213.32), net annual value, 1 vote. Of premises of fifty pounds and less than one hundred ¡touuds ($186.65), net annual value, 2 votes. Of premises of one hundred pounds and less than one hundred and fifty pounds ($729.97), net annual value, 3 votes. Of premises of one hundred and fifty pounds and less than two hundred pounds ($973.30), net annual value, 4 votes. Of premises of two hundred pounds and loss than two hundred and fifty pounds ($1,216.52), net annual value, 5 votes. Of premises of two hundred and fifty pounds and upwards, net annual value, 6 votes. Provided, that, where a person is rated in respect of preniises occupied separately and also in resi)ect of premises occupied jointly with anotlief person or persons, the net annual value of the premises so separately and jointly occupied shall not be capable of being added together for the purposes of this section. As R. Lloyd Patterson, Esq., president of the Chamber of Com¬ merce, has )-e(iuested that his answers to the questions be published verbatim, I have refrained as much as possible in the foregoing remarks from detailing what would be largely repetition of the aforesaid ollicial statement. Both Mr. Patterson and Mr. James IMusgrave, chairman of the Belfast Harbor Commissioners, whose answers to the questions also appear below, have been very con¬ siderate and courteous in rendering me aid ; and, as these gentlemen DOCKS AKD TERMINAL FACILITIES. 167 have thorough knowledge of the information wanted, their answers in their own words will be api)reciated. While the answers of both are frequently the same, there is sufficient divergence to justify the submission of each. Answers nv R. Lloyd Patterson, Esq. Answer to Q^iestion No. 1 : Largely' to its geographical position. (ffl) Rendering it the natural outlet for the produce of the neighboring counties. (J) Its proximity to the coal districts of Aj'rshire, Cumberland and Lancashire. ('■) Its great convenience for passengers between this country and the north-west of England and south-west of Scotland. (iZ) Its proxinnt3' to the great manufacturing towns and districts of Lancashire and York.shire. Answer to Question No. 2 ■ To a comparativelj^ small extent. Answer to Question No. 3 : To a very important extent. Answer to Question No. 4 : Same. Answer to Questions Nos. 5 and (> ; Entirely public ; it is a public trust, managed by an unpaid Board of lwent\'-one elected members (and one or two ex officio), called the Belfast Harbor Commissioners. One-third of the Board retires each year, so there is an annual election by the rate i)ayers and ship owners of seven mem¬ bers. Casual vacancies are tilled bj' co-option. Ansiuer to Question No. 7 : At one time there was private ownership, but forty-eight years ago, in IS 17, this began to be extinguished. An Act of Parliament was then ])assed, creating the trust, and giving the Board borrowing powers and j)owor to acquire such private docks, etc., as then existed. Prior to that a so-called "Ballast Board ' existed, which managed the river, channels and approaches ; but the newly created Board absorbed it and took over its debt, then about $978,000. The result has been undoubtedly beneficial. The first rate of interest paid was ö per cent., then reduced to 44 per cent., then 4 per cent and now 34 (ler cent. These 34 per cent, bonds are selling 168 DOCKS AND TERMINAL FACILITIES. to-day at Hi per cent, premium. There are two causes operating to make the bonds so desirable, viz. : the plethora of money and the difficulty of satisiactorily investing it ; and, secondly, the improved condition of the credit oí the Belfast Harbor Board, based no doubt upon the rapid growth and prosperity of the city, and consequently a corresponding growth of her commerce and shipping business. Answer to Question No. 8 : Worked in the public interest, no private individuals come in to mal^e profit out of the undertaking ; so, considering the facilities offered, the dues are moderate. Answer to Question No. 9 : I am now unable, without inquiry, to state the terms ; but conditions have so changed that the information would be of no practical value. Answer to Question No. 10 : From both ; the amounts from each and the other sources of revenue are shown in the last annual report. Cargoes generally pay the landing charges. Answer to Question No. 11 : Yes ; but only recentljq and as yet to but a moderate extent. This has been found so advantageous that the system is likely to be gradually extended and improved. Answer to Question No. 11 : The three local railways connect, more or less, with certain quays, the rails on the latter being the propert}' and under the control of the Harbor Board. Answer to Question No. 13 : The prosperity of the port commenced before the railway connections therewith were formed, but those have imdoixbtedly contributed to its continued development. Answer to Question No. 14 : No. (Note : A not very extended sj'stem of inland navigation by lighters on a canal exists from this port ) Ansiuer to Question No. 15 : Nothing special, beyond the railway connections already mentioned and a number of steam cranes for discharging coal, sometimes direct from the ships into railway wagons. DOCKS AND TERMINAL FACILITIES. 169 Answer to Question No. 16 : Public funds (government monej's) have been expended at Kingston, IIol3-head and other places, which are still used, and again at others, such as Donahadee and Fortpatrick, which are not now used. In the former case the expenditure has been fully justified, in the latter it has not. Of monej's spent by boards and trusts, as here or at Liverpool, Hull, Glasgow, etc., I onlj" know of one case not justified bj' results. Answer to Question No. 17 : Imports : barlej', lumber, grain, cement, coal, iron. Exports : cattle, coal, iron, linen, potatoes. Answer to Question No. 18 : The success of this port generally is the result of the foregoing, coupled with foresight, energy, enterprise, ability and puritj' in its inception, con¬ struction, maintenance and administration. Answers by James Musgrave, Esq. Answer to Question No. 1 : Natural advantages of harbor and commercial aptitude of the people Answer to Question No. 2 : Spacious estuarj', safe anchorage, small rise and fall of tide (which only averages about nine to ten feet), give great facilities for trade. Ansiver to Question No. 3 : I cannot saj", but Belfast harbor being vested in a public corporation who are elected from a class of merchants whose interests are identical with the cheap and efficient management of the harbor estate, it is reason¬ able to suppose that the great success of the harbor has arisen to a largo extent from its system of management. Answer to Question No. 4 : Belfast harbor being a public trust, I cannot say what it would have been under private ownership. Answer to Question No. 5 : Entirelj' public ; previous to 1817 much of it beionged to jjrivate owners, but public opinion required the Harbor Gommlssiouers to obtain par¬ liamentary power to purchase all private rights, which was done in that year. 170 DOCKS AND TERMINAL FACILITIES. Answer lo Question No. 6 : The harbor is managed b}' a corporation of twenty-one Harbor Com- niissioners, the lord mayor being ex ojficio. Eaidi commissioner holds office alter election for t.hree years. Seven retire each year, who are eligible for re-election 1)3' a constituency comprising every citizen whose property is valued at cue hundred dollars per year, the votes increasing up to six, according to increasing value, and by ship owners in certain proportion according to tonnage. Answer to Question No. 7 : Yes, as alread3' explained. an act of Taidiament. The result has been beneficial. Answer to Question No. 8 ; Under public ownership moderate dues are imposed and facilities pro¬ vided, with a view to the development of trade. Private ownership looks for the greatest return it can get. Answer to Question No. 9 : Do not exist. Answer to Question No. 10 : .\bout one-half of the revenue from rates is derived from a tonnage rate on ships, the other half from a rate on goods landed on the quays for export or import. The merchant pays the landing charges ; sometimes the goods are landed on the qnav" br' ship. Answer to Question No. 11 : Yes. The three trunk railways which communicate with the interior of Ireland come to (he limit of the harbor estate, and from thence the com¬ missioners have laid down rails that bring the railwav wagons alongside the ships, the haulage being done b}' the railway companies. Answer to Question No. 12 : Answered 1)3' reply to Question No. 11. The Harbor Commissioners eharge two cents per ton on goods earned for the use of the iiarbor tramways, which re])ays tiiem about one-half of the maintenance of the tramways and tiie interest on the cost of same. Answer to Question No. 13 : Impossible to say. Tiie railway's of course greatly benefit the trade of the town, but the ti-amways to the ship's side have not done much to extend DOCKS AND TEKMINAL FACILITIES. 171 trade, as the railway companies charge a substantial sum for carrying goods to or from the ship's side, — almost as much, in fact, as the old charge for carting from ship to railway. Answer to Queslioii No. 14 ; Yes. The Lagan Navigation Company, which extends into the Ulster Canal Company. These lighters do a large amount of inland trade, but they confer a vast benefit on trade by keeping down the railway charges for carrying goods. Answer to Question No. 15 : The Harbor Commissioners provide a very large extent of shedding along the quays for the protection of the goods in transit, and a large number of steam cranes is provided for the use of such merchants as re¬ quire them, but I think most other ports of similar size provide similar facilities. Answer to Question No. 16 : Yes; Liverpool, Glasgow, and all other ports where the local authority has been incorporated by Parliament. Belfast harbor and docks and quaj's are all developed out of money borrowed, first on bonds bearing interest at 5 per cent., subsequently re¬ duced to 4 per cent, and now in process of being converted into per cent, consolidated stock which commands a premium of 10 per cent, in the market. Answer to Question No. 17 : Large quantities of bread stufts and timber and other building materials are carried over our quays Of the staple trade carried on in the locality^ the most important is lime ; but, like Glasgow, Belfast has a great variety of industries of less importance but yet of great value, — ship building, iron founding and engineering, cotton, muslin, hemstitching and embroidery, pork curing, biscuit making, aerated waters, etc. Answer to Question No. 18 : The information given exhausts cverytliiug 1 can say. U. S. Consulate, Belfast, Aug. 23, 1895. 172 DOCKS AND TERMINAL FACILITIES. BOMBAY (British India). [From the report of S. Comfort, U. S, Vice-Consul.] Tlie great importance of Bombay is due to the fact that it possesses the liiiest harbor on the coast of Hindustan, and is most conveniently located for accommodation of the immense freight and passenger traille between India and Europe. As an entrepot for European trade with India it has no rival on the western coast. The harbor is very extensive, and capable of afford¬ ing safe anchorage for a very large fleet of vessels of the heaviest class. The entire water front of Bombay harbor available for shipping purposes is owned by a public trust controlled by the government, called the Bombay Port Trust. This trust has done much to increase the facilities for handling the extensive business of the port. It has constructed two commodious wet docks, with a combined area of 55 acres, and miles of quayage and a dry dock, besides making otner very extensive improvements. Erom the organization of the Bomb.ay Port Trust in the year 1873 to JEarch 31, 1895, the total expendituies on capital account have amounted to 54,330,982 rupees. The capital debt of the trust on the latter date was 50,755,900 rupees, of which 30,132,224 rupees was due to the government, 13,080,870 rupees was in debentures, and the balance, 7,542,800 rupees, in port trust foreshore securities, issued in payment for property purchased. Of this indebtedness, 373,760 rupees, due to the government, was non-interest bearing', 337,835 rupees was at 3i per cent., 26,376,902 rupees at 4 per cent., 20,334,403 rupees at 4J per cent., and the balance, 3,333,000 rupees, at 5 per cent, per annum. The earliest shipping returns available for comparhson are for the year 1871-72. They compare with 1894-95 as follows: — 187 1-72. 1894-95. Incueasb. Decreask. No. Tonnage. No. Tonnage. No. Tonnage. No. Tonnage. Steamers. Foreign trade, 227 252,915 664 1,301,304 437 1,048,389 - Coasting trade, . 208 74,279 1,279 766,874 1,071 692,595 - Sailing Vessels. All kinds, . 893 372,524 499 45,322 - - 394 327,202 Country craft, , 32,429 708,912 43,405 691,688 10,976 - 17,224 DOCKS AND TERMINAL FACILITIES. 173 This shows a remarkable change iu the character of the toooage in a period of twenty-three years. The greatest increase is in steamers in foreign trade, and the decrease in square-rigged vessels is equally remarkable. But these changes are undoubtedly due more to the opening of steamer tralHc through the Suez Canal than to any other cause. Nor can the great increase in steam tonnage in the coasting trade and comparatively small decrease in tonnage of country craft be attributed to any great extent to the improvements in the port of Bombay, but rather to the general development of the business of the country. The value of the total foreign trade of Bombay in merchandise only (exclusive of treasure) in 1894-95 was 680,000,000 rupees. The value of the total coasting trade in merchandise only in 1894-95, similarly, was 210,000,000 rupees. The Bombay Port Trust is governed by a Board of thirteen mem¬ bers, called the "Trustees of the Port of Bombay," consisting of twelve trustees and a chairman ; five of the trustees are elected by the members, for the time being, of the Bombay Chamber of Com¬ merce, and seven trustees and the chairman are nominated and appointed by governmeut, by notification in the " Bombay Govern¬ ment Gazette." The term of office of trustees, both nominee and elective, is two years. The chairman holds office during the pleasure of government, provided that he does not, in the mean time, cease, through disqualification, to be a trustee. In consequence of the varying tides at different seasons and the shallow water with rocky bottom near the shore, it is impracticable to provide wharves alongside of which large vessels can lie in safetj'. It was, therefore, found necessary to construct wet docks, into which vessels are admitted at high -water, after which the gates are closed until the tide is again at its flood. This, in connection with the immense warehouses and other improvements necessary for the ac¬ commodation of business, involved a very large expenditure, which was much more easily provided for by the use of government and public credits than it could have been in any other way. All such vessels as do not enter the docks are anchored in the harbor opposite the city, some a mile or more from shore. Petroleum, coal and some other kinds of cargo are landed on the bunders by lighters at moderate cost. These lighters are owned by individuals and kept for hire. A class of contractors called muccadums take cargo from alongside vessels and land it on the bunders or place it in the go-downs of consignees. Tiiese muccadums employ the necessary liglilers, coolies and carts, and do the work at rates fixed by special agreement The cost of handling cargo by this means is iu many 174 DOCKS AND TEEMINAL FACILITIES. cases less than it would be by using the wet docks, which, however, is not always possible. Kerosene oil is not allowed to be loaded or unloaded in the docks, on account of its supposed dangerous nature. The total revenue proper of the port trust for the year 1894-95 was 4,725,874 rupees; the expenditures under revenue during the same period were 4,717,941 rupees. The revenue is derived chiefly from wharfage fees that are charged on all kinds of goods and products lauded on shore, whether at the docks or on the bun¬ ders, as well as on all articles exported from shore. The rates of charges on these are special, and are by weight, measurement or package, according to the nature of the goods.' A large income is also realized from ground rents and rent of warehouses owned by the port trust. The consignees of the goods pay the landing charges. There are two great S3'stems of railwaj's connecting Bombay with the interior of India, which have developed the country and the business of the port trust of Bombay to a very great extent. Both of these are connected by switches with the wet docks and some of the bunders. A local railway connecting with all docks and bunders is projected by the port trust, and will probably be completed in the near future. U. S. Consulate, Bombay, Dec. 3, 1895. BORDEAUX (France). [The report of John M. Wiley, U. S. Consul.] Ansiver to Question No. 1 : The port of Bordeaux can scarcely be regarded as being in com¬ petition with other French ports. There are three important ports in France : the first is Havre, wliich is the port of Paris and a greater part of north-western France ; the port of Bordeaux, which receives and ships merchandise from the south-western part of France ; and the port of Marseilles, which serves a like purpose for southern France. Of course there are many other ports, like Dunkirk, Bou¬ logne, St. Malo, Brest, La Rochelle, Rochefort and Rayonne, but their trade in no way interferes with that of the largest sea-coast cities. DOCKS AND TERMINAL FACILITIES. 175 Ansiver to Question No. 2: The physical features of the harbor of Bordeaux enter, and have for centuries entered, in a great measure into its success. It is situ¬ ated on the Garonne River, about sixty miles from its mouth. This stream is navigable up to Bordeaux by the largest ocean steamers, and is in some places five miles in width. Bordeaux and the south¬ western portion of France, being one of the greatest wine-growing districts of the world, and importing .at the same time immense quan¬ tities of merchandise from other countries, naturally was forced to have a port, which has served commerce ever since shipping and ships existed. Answer to Question No. 3 : The management and control of the docks and quays of Bordeaux effect in a great measure, though not entirely, its success. There are, strictly speaking, no wharves ; that is to say, the entire river front, about three miles in length, is arranged in such a manner that vessels can load or discharge their cargoes at its very edge. The quays of this and of other French cities are under the control and supervision of the government. The rules and regulations are, of a natural consequence, identical in all cities. Ansicer to Question No. 4 : It may be said that the State's control of the docks and quays in France materially affects their success. They are kept in a perfect condition by government engineers and workmen, and are in every respect admirable in appearance and management. Answer to Question No. .3 : The answer to this question is embraced in that given above. An.swer to Question No. 6 : The docks and quays of French se.a-ports are controlled by what is called the Administration des Ponts et des Chaussées; that is to say, the Board of Bridges, Docks and Roads. Like all other gov¬ ernment administrations, entrance to it can only be had by passing an examination. Promotions follow, and the directors are those who have been longest in the service. 176 DOCKS AND TERMINAL FACILITIES. Ansiver to Question No. 7 : The answer to this question is embraced in those given above. Ansioer to Question No. 8 : To this question the answer is embraced in those given above. Answer to Question No. 9: The docks and quays of French sea-ports have for a great num¬ ber of years been under the control of the government. Those who owned land bordering on the river front were naturally compensated for the taking of this land by the State ; but this is now so far back that it would be almost impossible to tell what were the sums paid. Of course the amounts varied according to the situations and com¬ mercial importance of each town. Answer to Question No. 10: The principal source of revenue of the docks and quays comes from charges on vessels. Answer to Question No. 11 : A railway runs along the entire river front of Bordeaux, parallel with the quay. It communicates on either extremity of the city with all the important lines which enter and leave Bordeaux. In this way merchandise may be sent to any part of the country or received from it. Answer to Question No. 12: The railroad connecting the main lines with the docks is owned by the State, but three separate lines are, for a certain consideration, given the privilege to use it, as each of these lines has separate rates of freights. Charges of course vary. Answer to Question No. 13 : A great degree of success, though not all, may be attributed to Bordeaux through its railway connections. I repeat, however, what has been stated before, — that this city has been since the time of the Roman invasion of the Gauls an important commercial centre, and was so befoi'e railways existed. DOCKS AND TEKMINAL FACILITIES. 177 Ansiver to Question No. 14 : Numerous lighters and sailing boats ply between Bordeaux and the various cities situated on the Garonne River ; they carry wine, food stuffs, etc. Bordeaux is also connected by a canal with many im¬ portant cities of southern France. The canal and lighter charges are in all cases moderate. Ansv:er to Question No. 15: Bordeaux possesses terminal and distributing facilities superior to those of other parts in this region. Ansioer to Question No. 16 : I know of no French sea-ports where the docks have not been built by, and are not under the direct control of, the government, and La Rochelle is the only one where receipts do not warrant expenditures. Answer to Question No. 17 : Fruit, glycerine, gum, macaroni, mineral waters, nuts, olive oil, paper, prunes, rags, sardines, skins, tartar, truilles, vanilla, vege¬ tables, wine and wool. U. S. Consulate, Bordeaux, France. BRISTOL (England). [From the reiiort oí F. B. Girulestone, Secretary and General Manager Bristol Docks Committee.] Bristol Docks Office, Queen Square, Bristol, July 4, 1895. Answer to Question No. 1 : The port of Bristol is essentially an import port, the greater por¬ tion of the vessels which frequent it resorting, after discharge of their cargoes at Bristol, Avonmouth or Portishead docks (all of which are within the port of Bristol and belong to the corporation of Bristol), to Cardiff, Newport, Barry or one of the other coal ports in South Wales for their export cargoes. The only port which can be said to be in close competition with Bristol is Sharpness, twenty miles further up the Severn than Avon- 178 DOCKS AXD TERMINAL FACILITIES. mouth, between which and Gloucester there is a canal capable of accommodating vessels drawing about eighteen feet. The port of Bristol enjoys considerable advantages over Sharp¬ ness, inasmuch as there is deep water close to the mouth of the Avon and a straight lead thereto from the ocean. Vessels bound to Sharp¬ ness often have to wait some days for adequate water. Under these circumstances vessels prefer to discharge at the port of Bristol rather than at Sharpness. Vessels of large size can enter the Avonmouth or Portishead docks on nearly every tide of the year towards time of high water ; and, as regards the city docks (whicii are six miles up the river Avon), there are but few tides on which a vessel drawing say sixteen feet can¬ not proceed direct from sea thereto. Vessels of deep draught have occasionally to wait two or three days in Kingroad at the mouth of the river for tide. Another great advantage enjoyed by the port of Bristol is the fact of its very central position and consequent convenient facilities for distribution of cargo to inland towns, as far as Birmingham on the north, Reading on the east, Exeter on the south-west and by water to all the ports within and around the Bristol channel. Another advantage which the port enjoys over its competitors is the low tariff of its dues and laborage charges, and the fact that for very many years it had been considered as practically the metropolis of and chief distribution depot for South Wales, and a great import¬ ing centre for all American, Canadian and West Indian produce. The importing merchants reside chiefly in Bristol, and not at Cardiff, Newport, Barry and other South Wales ports. Bristol markets have always had a great renown, and the city has made great strides of late years in industrial enterprise, population and wealth. Antitrvr to (Question Xo. 2 : The great range of tide, viz., forty-two feet at springs and twenty- five feet at neaps at tlie city and outer docks respectively, the easy and deep-water channel leading thereto and the sheltered and inland position of the docks certainly contribute much to the success of the port. ^iiimcer to Question No. 3 : The very efTicient staff of officials, foremen and laborers kept up by the corporation (who are the owners of the docks, and practically do tiie whole of the work both for the ship and merchant at Avon- mouth and Borlisliead, and also to a large extent at Bristol), the effi¬ cient and rapid way in which all laborage oi)crations are conducted. DOCKS AND TERMINAL FACILITIES. 179 the low tariff of charges, and a system of giving corporation warrants for goods stored, undoabtedly contribute greatly to the success of the port, and to the favorable view which ship owners and merchants take of it as a convenient and economical centre for importation and dis¬ tribution of foreign produce. There is no dock, it is believed, in Great Britain where better facilities to traders are provided, or where the work is done with greater despatch or so nearly at cost price as by the corporation at this port. Answer to Question Xo. 4: The fact of the corporation being the owners of the docks enables capital required for dock purposes to be raised on very easy terms. The capital so raised to date amounts to £2,100,000. Money can now be borrowed for dock purposes by issue of debenture stock at about 2-5 per cent., the lenders having, in addition to all the works and dock revenue as security, a lien on the borough rate. The dock 35 per cent, debenture stock (which is practically irredeemable) is to-day quoted at the price of 123| per cent. Parliament, however, compels all capital so raised to be liquidated by means of a sinking fund within fifty years from the time each sum is borrowed. This sinking fund entails now a charge on the dock revenue of about £9,000 per annum. Answer to Question No. 5 : As above set forth, the ownership and control of all the docks within the port of Bristol vests in the maj'or, aldermen and burgesses of the city of Bristol. The principle of working aimed at is not so much to make a profit as to increase the volume of traille by keeping the tariff of charges low, and providing from time to time (largely out of revenue) such further sheds, cranes, quays, railways, telephones, etc., and other facilities as the ever-changing type of traffic, and vessel in which it is conducted, seem to call for. If, however, the docks estate in any year yields a profit, that should strictly be paid into the borough fund to the relief of the general city rates. As a fact, up till recently the docks estate, owing chiefly to large sums expended out of its ordinary revenue on new works, has been more or less a burden on the citizens ; but this year (1895) it has, exclusive of sinking fund and notwithstanding an expendi¬ ture of nearly £14,000 on extraordinary works, arrived at a state of equilibrium; i. e., all dock and harbor expenditure has been met out of the dock and harbor resources, without any recourse to a " rate in aid" from the citizens, as has been the case heretofore. 180 DOCKS AND TERMINAL FACILITIES. But, as referred to, there has been included in the dock accounts for many years past large sums ou account of extraordinary new works, and, in addition, a sinking fuud amountiug now to about £100,000 has been built up. By means of this fund the citizens about fifty years hence will possess a splendidly equipped dock estate, practically free of debt. Answer to Question No. 6 : The docks committee consists of nineteen members of the town council, who are appointed annually by the town council to manage the affairs of the dock estate and report thereou from time to time to the town council. That committee has under it a general manager and secretary, engineer and two assistants, collectors of dues, a chief clerk, a legal officer, six dock masters, three tr.afflc managers, and other officials and a large staff of clerks. The working of the dock estate is regulated by by-laws and regulations, by minutes passed by the council and committee and by orders passed in urgent cases solely on responsibility of the general manager. Ansiver to Question No. 7; The Avonmouth and Portishead docks, which are at the mouth of the river Avon, were constructed by private companies and taken over by the corporation under parliamentary powers in 1884, the object aimed at being the stoppage of the insane competition between the three different dock concerns, and the saving of ruinous loss which thereby was caused to the citizens from the working of their city docks. The results aimed at have been attained, inasmuch as that competition has ceased, and it has been found possible to so readjust all the dues and charges as to secure a very considerably greater revenue from the working of the united concerns than could ever have been obtained from the three under separate ownership. Again, those vessels which can physically come up to Bristol, and which before the amalgamation were being diverted to Avonmouth and Portishead, have sitice the amalgamation come up to Bristol, thereby largely adding to the indirect advantage of the citizens. Only the very large vessels and those required to be discharged with despatch are now being taken into the outside docks. Answer to QueMion No. 8 : The commercial advantages given by public ownership over pri¬ vate ownership of docks, wharves and quays consist, in my opinion. DOCKS AND TERMINAL FACILITIES. 181 of the rates being fixed alike to all customers under similar circum¬ stances, of there being no discounts or rebates allowed; i. e., of all dues and charges being levied impartially and maintained at the pub¬ lished tariff without fear or hindrance, and the absolute refusal to give any rebates, drawbacks or other reduction from this published tariff. Again, a public authoritj', being able to raise its money on lower terms than private owners, and having no dividend to pay, has more interest in keeping the docks in an ellicient condition and fur¬ nishing them with the additional appliances and accommodation re¬ quired from time to time by the ever-changing type of vessels and conditions of working traille. Private owners, seeking only to work the docks for dividends, naturallj^ maintain a high scale of charges, which is against the trader's interest. They also hesitate to expend further capital until they are actually forced to do so either by a threatened loss of trallic or an inability to accommodate the ordinary vessels plying at the time in the différent trades. Ansiuer to Question An. f) : The terms arranged for the purchase of the Avonmouth and Portishead docks were based on the net revenue which the corpora¬ tion thought they could, without detriment to the volume of tratlic, derive from those concerns when worked as a part of a united dock undertaking, together with a small sum for good-will. Avonmouth dock was purchased for about two-thirds and Portis¬ head dock for about four-lifths of what they had cost their former- proprietors. The funds for purchasing those docks were raised by the issue of corporation debenture stock on tire security of the dock estate and borough fund, wldch includes tire dock dues, etc., under the powers given by Parliament in the purchase act of 1884. An.veer to Question Xo. 10: The prirrcipal revenue of the docks and quays comes from dires orr vessels and their cargoes, dues oir animals from foreign and coast¬ wise, trairsit shed rates, license fees on barges and boats, dues on vessels lying up, rates for use of dock canal, rates for use of gridiron and pontoon dock, rent of properties atrd ferries, transfer fees, sale of old materials, hire of dredging gear and dues for use of patent slip. Revenue is also derived in the traffic department from the working of the foreign animals wharves, from laborage performed for ship owners and merchant, for use of sacks and sundries, for shunting and for use of plant, and in the wareiiouse and granaries and quays from rents on goods stored therein or stacked on. 182 DOCKS AND TERMINAL FACILITIES. At the port of Bristol the custom is for the ship owner to raise the cargo to the ship's rail, the merchants taking it from the ship's rail and landing it onto quay or into truck, barge, cart or shed. In the case of bulk grain the merchant has to do a certain amount of work in the hold. Ansiver to Question No. 11 : At the Avonmouth and Portishead docks the Great Western and Midland Railroad companies' trucks have direct access to the dock quays and vessels lying thereat. At the city docks only the Great Western system of railway is directly connected with a certain portion of the deep-water berths. The Midland and London and South-western companies collect goods by barge, and cart free of cost to the trader. At all three docks vessels can discharge and receive freight direct from railway trucks, and this is a convenience which, coupled with ample sheds and cranes, any dock seeking to be a first-class dock and Competing with other docks must of course have, in order to conduct grain and general traffic. Answer to Question No. 12: The lines within the dock premises both at Avonmouth and Portis¬ head belong to the corporation, and similarly on certain portions of the deep-water quays at Bristol. At present no tolls are taken from either the owner of the goods conveyed in the trucks or from the rail¬ way companies whose trucks are conveyed by tlie corporation engines over these lines ; but the corporation is now at law with the railway companies for the recovery of the cost of such shunting, or making it compulsory on the companies to supply the locomotive power them¬ selves. The shunting costs about six pence a ton, including interest on the first cost of lines and plant. Ansiver to Question No. 13 : Undoubtedly the trade at this port, which is largely in grain and provisions and timber, could not be worked at all, or at any rate profitably, without the deep-berth quays being connected with the rail¬ way systems of tlie country ; but the port of Bristol has this great advantage, viz., that, in addition to having railway connection with three of the great systems with its deep-water quays and warehouses, it has a vast fleet of coastwise vessels plying daily from the port in all directions, near and far, along the shores of the Bristol channel DOCKS AND TERMINAL FACILITIES. 183 and to Ireland, as well as to all the principal ports in pjUgland and Scotland. It lias also a first-rate system of inland communication by means of canals, the Severn Canal running northwards to Birm¬ ingham and the Keimett and Avon, and Berks and Wilts canals east¬ wards as far as London, which enables heavy goods to be distributed very economically and tolerably rapidly to the leading towns in Great Britain. The railway companies miglit, however, do far more for tlie port than they do, especially in the matter of assisting to provide proper accommodation for the largest type of ocean mail and passenger trafile, for which this port, from its great range of tide and nearness to London and direct and easy channel navigation, offers peculiar facilities. Answer to Question Wo. 14 : The corporation owns several big lighters and hulks, and uses them chiefly for the purpose of giving despatch to the liners discharging at Avonmouth dock. There is no public system of lighterage. The lighters and barges are owned by private firms, and are obtainable at very moderate rates. There is great competition within the port for all classes of lighterage work. Its cost varies, according to distance and bulk, from six pence to one shilling per ton. Ansioer to Question Wo. 15 : The superior advantages of the port of Bristol over other practi¬ cally similar ports in regard to terminal facilities consist of a com¬ plete set of transit sheds round the quays alongside the deep-water berths. For its size there is probabl}' not a better equipped dock in this respect than Avonmouth, or what is called the harbor railway wharf at Bristol. As regards the distributing facilities, these liave already been re¬ ferred to in answer to Question No. 13. Ansiver to Question No. 16 : Up till quite lately Bristol was the only port in the United King¬ dom owneil by a municipality. The municipal bodies have, however, lately been authorized to build docks and provide other terminal facilities at the port of Manchester, Boston (in Lincolnshire) and Preston. There are many other ports, such as all the Scotch and Irish ports, also Liverpool, Swansea and other places, where the control is in the hands of the public trusts, who raise their money on the security of the harbor dues oulv. 184 DOCKS AND TERMINAL FACILITIES. As regards the expenditure on docks "by municipal bodies, it is notorious that both at Preston and Manchester the results so far in regard to revenue have not come up to those predicted, and that the citizens of those places will for manj' years to come be mulctetl very heavily in rates, in order to provide funds for meeting the interest for which they have made themselves responsible in respect of the money invested in those undertakings. At Preston the rate borne by the citizens alre.ady amounts to one-eighth in the pound, and little or no foreign traffic has been attracted. At Manchester the citizens are responsible for interest on £5,000,000 invested in the ship canal undertaking. Bristol is one of the few, if not the only port in England, where the municipal funds invested therein have resulted most advantageously to the citizens; and this can be easily proved by the increased value of the ratable property, increased population and industries started in and around the city, and the great indirect profits reaped by the citizens from the large trade done in the heart of the city. Ansiver to Question No. 17: The chief staple traflies at the port of Bristol are grain, timber, refined sugar, petroleum, provisions, seeds, oil-cake, ores, fruit and foreign cattle. In addition, I would state that the city docks at Bristol were made by damming up a certain portion of the old tidal river Avon, under an act of Parliament obtained in 1803, a new cut being made for the upland waters to pass down to the Severn. This was a great work at the time, and cost the best part of £750,000. The work was undertaken by a joint stock company, in which the corporation of Bristol and the Merchant Venturers'(Iuild held shares. The com¬ pany was, however, always in financial dililcnlties, and charged very high rates, which the act of Parliament permitted. This policy proved BO detrimental to the trade of the port that at length in 1848 the corporation determined to take over the dock estate for the benefit of the city. The act under which they obtained this power compelled them at the same time to lower the dues to the extent of quite two-thirds, both on vessels and goods, any deficiency in revenne caused thereby being made good by the power to charge a rate in aid on the citizens to the extent of four pence in the pound. Generally speaking, it may be said that the trade of the port has since then continually increased. Docks at Avonmouth (seven miles below the city) and at Portishead (two miles below the river mouth) DOCKS AND TERMINAL FACILITIES. 185 were opened by private companies in 1877 and 1881 respectively for the purpose of accoinmodatiug only the bigger class of vessels which could not physically get up to Bristol. Those docks, however, failed to get any very large ocean liners, and at once commenced a severe competition with the corporation docks. This competition became so ruinous that in 1884 the corporation, in self-defence, had to buy both docks, giving therefor very considera! 1I3' less than the docks had cost their original owners. The three sets of docks are now worked as one concern by a committee consisting of nineteen members of the town council, appointed annually by that body. The total capital of the dock estate is about £2,100,000. In addition to the revenue from the dock estate, the city from time immemorial has the right to charge certain city dues on vessels and goods resorting to the old city docks ; and out of these dues consider¬ able sums have during the last fiftj' j'cars been expended in improv¬ ing the quaj's, erecting sheds and cranes and providing other trading facilities. Taking the whole revenue, dock estate and citj^ dues, together, the net revenue has suflieed to pay 3.59 per cent, on the outstanding capital of the whole concern. The policy of taking over the whole of the docks by the citizens has proved an exceedingly wise one, the foreign trade, population and wealth of the city having enormously increased, and the works having been maintained in a high state of elllciencj', generali}' out of surplus revenue earned by the docks. Taking the amount of rate in aid paid by the citizens of the docks estate since the transfer to the old docks from the private companj' in 1848, and the amount of city dues paid in by the docks and har¬ bor estate to the borough fund during that time, j'ou will see that the two pretty well balance each other. Enormous sums, however, have been expended out of the united revenue not only in improving the river (which is now navigable by steamers of 1,200 tons register and sailing vessels of 1,800 tons register on all ordinary tides), but more than £250,000 on other works found reiiuisite according as the trade has increased and type of vessel changed. The great advantage of a public authoritj' owning the docks estate as compared with a private company is that it can raise its money far cheaper. "We, for instance, raise ours at 2.16 per cent., the works are kei)t in a more eilicient state, the dues and charges arc also lower, and invariably maint.ained at the published scale. A great many docks and harbor concerns in this country are worked by harbor trusts, and raise their money on the security of the docks or harbor revenue only. This port up till quite lately was unique as 186 DOCKS AND TERMINAL FACILITIES. regards ownership by a municipality. Manchester and Preston have now adopted the same course ; but I fear that, in view of the enor¬ mous expenditure to wliich they have committed the citizens, it will be many years before their capital becomes remunerative. My opinion is stroirgly in favor of public ownership of docks and harbors. Bristol Docks Committee, July 4, 1895. CAIRO (Egypt). In compliance with circular instruction of July 12, 1895, based upon the request of the Massachusetts State Board on Docks and Terminal Facilities, I have the honor to transmit reports upon the docks and wharves of Alexandria and Port Said, prepared by the consular agents at those ports. Frederic C. Penfield, Consul-General. U. S. Consulate, Cairo, Nov. 16, 1895. Alexandria. Ansioer to Question No. 1 : If our port is a success, it is because it is a government monopoly, and re.ally has no rival, unless Port Said can be called one. Ansioer to Question No. 2: To the fact Of there being a large artificial breakwater (made of stone and hydraulic lime blocks, weighing fifteen tons each), and to the fact of there being quays and sheds, alongside of which most steamers lie, and down which cargo-laden trains run alongside the steamers. Ansi.ver to Question No. 3 : The management and control of the wharves and quays are in the h.ands of government oilicials, and leave a good deal to be desired ; under better management, the success will be greater. DOCKS AND TERMINAL FACILITIES. 187 Ansii:er to Question Ao. 4: See answer to No. 1. Answer to Question Ao. ù : Wholly Egyptian government. Ansiver to Question No. 6: The use of wharves (there are no docks, except a floating dry dock in bad order, good enough only for a steamer of say 1,500 tons net register; this, too, is government property, but managed by another department than the post-oflice) is controlled by chief oiilcers, nomi¬ nated by the British government. Answer to Question No. 7 : See answers to Nos. 1 and 3. Answer to Question No. 8 : Private ownership does not exist and never has existed. Ansiver to Question No. 9 : See No. 8. Answer to Question An. 10: Both vessels and cargoes are charged for use of the quays ; the former by an annual payment, the latter by so much per package, which goes to the customs department. Agents of vessels charge 80 cents per ton for landing measurement goods and 50 cents for landing charges (called here quay dues). For other goods, by weight. Answer to Question No. 11 : Yes ; see No. 2. An.swer to Question No. 12: The railway system in Egypt, like the port here, is out-and-out government, controlled by what is locally known as the Board of Administration (this, too, has supreme control over the port of 188 DOCKS AND TERMINAL FACILITIES. Alexandria), composed of three members, one British (president), one French and one native. Answer to Question No. 13 : A great deal. Ansioer to Question No. 14 : Yes; lighters are used by steamers with general and coal cargoes, but this system is only adopted when quay space cannot be had. A lighter (average size) contains 30 tons of dead weight, and may be hired for 81 per day. Answer to Question No. 15 : The port of Alexandria possesses more distributing facilities than all otlier Egyptian ports put together, as before indicated. Ansioer to Question No. 16 : This port had its breakwater, quays, sheds, etc., built by bor¬ rowed public money, Known as the privileged debt, issued at £100, present price £99, and paying SJ per cent, upon the £100. The revenue of the port is applied to the payment of the dividend and annual drawings to pay off said debt. Answer to Question No. 17: Inwards : coal, iron and Manchester goods. Outwards : cotton, grain and cotton seed. Answer to Question No. 18 : The foregoing answers rvill at once show that the conditions at this port will prevent its being compared with other ports throughout the world. Port Said. vbi.sv/vr to Question No. 1 : To the transit steamers through the Suez Canal. Answer to Question No. 2 : There are none. DOCKS AND TERMINAL FACILITIES. 189 Ansiver to Question Xo. 3: None of these exist. Answer to Question Xo. 6 : The so-called quay is regulated by the canal company's officials. Ans^oer to Question No. 7: Never. Ansiver to Question No. 8 : None. ^•líí.sírer to Question No. 10 : The landing charges are paid by the consignees of goods, etc. Ansiver to Question No. 11 : No. Ansiver to Question No. 12: There is only a steam tramway belonging to the canal company and running daily from Port Said to Isinailia and vice versa. It has no connection whatever with docks, and is only used for passengers and mails. Answer to Question No. 14: Lighterage, 5 ps. per ton. Answer to Question No. 15 : That of receiving from the east and forwarding to Syria, Turkey and Adriatic ports all sorts of goods, which are trans-shipped here. Answer to Question No. 16 : No. Answer to Question No. 17 : Welsh coal; about 1,000,000 tons imported annually. 190 DOCKS AND TERMINAL FACILITIES. Tearhj Return of Tonnage passing tliroxigh the Suez Canal from its Opening up to and including 1895. J. YEAR. Number of Gross Vessels. Tonnage. Net Tonnage. 1869, ... 10 10,557.61 6,576.00 1870, . ........ 486 654,915.02 436,609.37 1871, . . 765 1,142,200.46 761,467.05 1872, 1,082 1,744,481.32 1,160,743.54 1873, 1,173 2,085,072.61 1,367,767.82 1874, 1,264 2,423,672.22 1,631,650.14 1875, ... 1,494 2,940,708.45 2,009,984.09 1876, 1,457 3,072,107.01 ' 2,096,771.61 1877, 1,663 3,418,949.72 2,355,447.69 1878, .......... 1,593 3,291,535.38 2,269,678.31 1879, . 1,477 3,236,942.32 2,263,332.19 1880, ....... . . 2,026 4,344,519.89 3,057,421.88 1881 2,727 5,794,491.19 4,136,779.77 1882 3,198 7,122,125.68 5,074,808.88 1883 3,307 8,051,307.30 5,775,861.79 1884, 3,284 8,319,967.36 5,871,500.92 1885, 3,624 8,985,411.80 6,335,752.98 1886, 3,100 8,183,313.15 5,767,655.84 1887 3,137 8,430,043.20 5,903,024.09 1888, 3,440 9,437,957.32 6,640,834.44 1889, ... . 3,425 9,605,745.48 6,783,187.12 1890, 3,389 9,749,129.09 6,890,094.41 1891, 4,207 12,217,986.41 8,698,777.36 1892 3,559 10,866,401.46 7,712,028.61 1893, 3,341 10,753,798.15 7,659,068.10 1894, 3,352 11,283,854.72 8,039,175.27 1895, 3,434 11,833,637.33 8,448,383.01 CARDIFF (Wales). [The report oí Anthony IIowells, U. S. Consul.] vlhsifcr to Question No. 1 : The teiTiis "Cardiff" and "success" are deemed synonymoits in this country, and one often hears tiie remark that its phenomenal progress stamps the place as being quite an American sort of city; nor can we demur to the comparison. DOCKS AND TIÍK.AIINAL FACILITIES. 191 The antiquity of the city takes us hack to the Roman invasion, when Aulus Diclius established a Roman station here, the name Car¬ diff being an anglicized form of the term " Castra Didii ; " but its commercial history does not extend beyond the present century, and is strictly contemporaneous with the development of the min¬ eral wealth of the South Wales coal field. I find that the government census returns give for the year 1801 a population of 1,018, whereas in 1891 the inhabitants numbered 128,84!) and to-day are computed at nearly 160,000. Cardiff is the leading coal port of the world, and owes its remarkable success en¬ tirely to its proxiinity to the Welsh coal b.asin, from which excellent steam coal is obtained. The demand for Cardiff coal for steam pur¬ poses has been so great that local enterprise by way of dock facilities has been unequal to it, with the result that the freighters have them¬ selves built what is known as the "Barry dock," within the port, but distant nearly eight miles from the city of Cardiff. The land for the most part belongs to the Marquis of Bute, whose noble father in the year 1839 completed the Bute docks, since when the shipping has been on a large scale and has increased by leaps and bounds ; and the ownership is even now practically in the hands of Lord Bute, albeit, by virtue of powers contained in an act of Par¬ liament of the year 1886, it was incorporated into a public company, under the title of the "Bute Docks Company, Cardiff." The pur¬ chase price was £3,500,000 sterling, or about $17,500,000; audit is noteworthy that the whole of the 4 per cent, debenture stock, $4,000,000, issued at par, was subscribed for within an hour from the time that the lists were opeued. Besides the Bute docks there are the Penarth docks, owned by another limited liability company ; and an idea of the full market value of these properties may be adduced from the fact that during last year the city corporation elaborated a scheme to acquire them at an estimated cost of over $40,000,000. By adding thereto the value of the Barry dock, a new dock soon to be opened by the Barry Company, also another new dock in course of construction by the Bute Docks Company, the total value of these properties would exceed $50,000,000. The import trade is confined chiefiy to lumber (a considerable por¬ tion of which is fit for use as props in the coal mines) and Spanish iron ore for the iron and steel industries ; also grain and flour, the general merchandise being comparatively inconsiderable. Anstver to Question No. 2: A natural harbor exists, and the dock entrances to the port are sheltered from all winds, and the largest vessels afloat can be accom- 192 DOCKS AND TERMINAL FACILITIES. modated. Being within easy distance of the coal field, which crops out at Merthyr, twenty-four miles distant, at a height above the sea level of 568 feet, an easy down grade from all points permits of very heavy train loads of coal being brought speedily to the docks ; and, as vessels can be docked at any time, irrespective of tides, and steamers can be loaded into two or more hatchways simultaneously at the rate of 600 tons per hour, with the minimum of breakage, the despatch is all that may be desired. It is claimed, with a show of reason, that Cardiff is the natural port for the populous midlands district; but it must be confessed that the demands of the coal and patent fuel export trade have occupied the minds of capitalists in this district, and that comparatively little has been done to foster the import trade, although at present the best facilities are offered, and there is every evidence of an earnest desire to make it commensurate with the exports. Ansicer to Question No. 3 : It must be conceded that foresight and enterprise have been dis¬ played by those upon whom has devolved the task of providing the magnificent dock accommodation by means of which the enormous trade of the district has been developed ; nevertheless, it is beyond question tliat private ownership has been responsible in past years for grievances under which the freighters groaned. Now, however, competition has naturally brought about a state of things which may be termed satisfactory in respect of management and control. ^Insver to Question No. 4 : The Bute interests at the Cardiff docks may be more clearly un¬ derstood when it is known that the Marquis of Bute is " lord of the manor " of the lion's share of the steam coal district, and that his manorial rights include royalties on the coal produced. With a roy¬ alty of eight or twelve cents, as the case may be, and a clause in the mining lease that all coal raised under such lease sliall be exported from Cardiff in preference to any other "Welsh port, it wdll be seen that his lordship and his trustees have had all the stimulus required to develop the docks. But they have failed to keep pace with the demands, and unquestionably if the ownership had been public a better growth would liavc been obtained, and, instead of a scattered port, as at present, the docks would have been grouped, to the ad¬ vantage of everybody' concerned. DOCKS AND TERMINAL FACILITIES. 193 Answer to Questions Nos. o, 6 und 7: I have already shown that the ownership, although ostensibly pub¬ lic, is practically of a private nature as regards the Bute docks. The Penarth docks belong to a company which is to all intents and purposes identical with the local railway, by whom the docks are con¬ trolled, and the same remark applies to the Barry dock. In the last case its success has been assured by the fact of its having been pro¬ moted by revolting freighters, who spent enormous sums in obtaining parliamentary leave and afterwards in constructing the largest single dock in the world ; and it is noteworthy that their stocks return ten per cent, per annum, and so satisfactory is their reserve fund that the market quotations are more than double the original prices. Ansiver to Questions Nos. 8 und O : I The desii'e for a harbor trust or board of control has manifested itself for a number of years past, and it had been fondly hoped that this would have been accomplished last year; but the consummation so devoutly wished for by a considerable section of the [)ublic is not yet within sight. In the month of November, 1892, a committee was appointed by the city corporation to inquire and report to the coun¬ cil on the feasibility and advantage of forming a harbor trust ; and shortly afterwards the committee reported that to all of the inquiries made to the various interests concerned favorable replies had been received, and that it was therefore desirable to proceed with the for¬ mation of such a trust as would be for the benefit of the town, trade and port of Cardiff, as it was the first time in the history of Cardiff that the different ownerships had expressed themselves willing to combine. The experiences of the Dublin Board, Belfast Board, Clyde Trust, Greenock Trust, Harwich Board, Swansea Trust and Dundee Trust were cited, and it was submitted that, with a Board fully representative of all the interests of the port, a great develop¬ ment migiit be made, the import and export trades fostered and the ratable value of tiie town of Cardiff increased. It was pointed out that one of the advantages of a trust would be that the undue competition would be done away with ; and, if the Board were a fully representative one, there would always be a balance of power there to see that each trade and interest was carefully represented and fos¬ tered, and that the saving effected on the administration charges and parliamentary costs would go to the reduction of dues, thereby offer¬ ing inducements for an increase of trade, as with a trust surplus 194 DOCKS AND TERMINAL FACILITIES. profits generally are devoted to dock extension and in every way necessary to encourage manufactures which are usually most prosper¬ ous on sea-board localities. The prices to be paid were based on twenty-five years' purchase at four per cent., taken on three years' earnings ; and it was proposed to borrow some three-fourths on the properties, and to pledge the rates for the remaining fourth of the capital, which would soon have to be augmented for development of the port by increasing the dock capacity and utilizing land on the foreshore now valueless but prospectively of the greatest im¬ portance. However, just as it was thought that matters had been brought to a head, confiicting interests gave a check, and before a settlement could be arrived at the time limit for parliamentary notices for the year 1894 expired, and negotiations were broken off. When these will be resumed it is dillicnlt to foretell; but what I am trying to enforce is that the trend of local opinion is in favor of a public trust, and that on every hand it is lamented that such a step was not taken half a century ago. From each of the trusts cited above affirmative replies were received as to the advantages of public ownership, and in most eases it was shown that a considerable amount had been expended on the respective properties out of revenue, and in several instances the capital decreased. The broad representative character of the constitution of tiie Clyde Trust is most favorably regarded and was much commended in the London press during discussions anent the formation of a general conservancy board for the Thames ; and nowhere is it recognized more clearly than at Cardiff that such a trust would iiave been an incalculable boon to the port. An titrer to Question No. 10: The docks rates vary from 2 to 18 cents per ton, and the loading cliarges (trimming coai) G to 12 cents per ton of cargo, wharfage and labor ciuirges being comparatively low. It is claimed that the charges on the whoie are no less than 30 per cent, lower than any other port in the kingdom, the i-ate of dock dues per vessel being 18 cents per ton register, and steanii)oats bunker here at greatly reduced charges. There are no town dues. Ansiver to Questions Nos. IL lutd 12: There are direct railroad connections with the docks from main lines, so tiiat vessels can discharge and receive freight direct from the trains, the railroads in the vicinity of the docks forming part DOCKS AND TERMINAL FACILITIES. 195 of the dock property in each instance. The four railroads running into the port are the Great West (Trunk) line, the Rhyinney Railway, the Taff Vale Railway and the Barry Docks Railway, each of which is controlled by a limited liability company. The legal maximum rail¬ way rate for conveying coal from the collieries is .875 of a penny (two cents) per ton per mile ; but all large exporters have special rates, as, for instance, one large firm, whose collieries are situated nearly twenty miles from port, are charged, according to contract, 23 cents only per ton. Aiiiiiver to Question No. 13 : The railroad connections provide the necessary competition to keep down the freight charges, and one of the first consequences of the opening of the Barry Docks Railway, promoted by freighters, was to bring about a war of rates, which resulted in an appreciable redac¬ tion. I may add that the local lines are connected with all the trunk lines of the country, and herein is afforded an opportunity for enor¬ mously increasing the volume of imports. Answer to Questions Nos. 14, 13, 16, 17 and 18 : There is no system of lighterage at this port, but a uniform charge of eight cents per ton is enforced for the use of barges in discharging ballast. In view of the undoubted fact that in other ports in the United Kingdom having far less natural advantages than Cardiff harbor trusts have been the means of largely developing the ports con¬ cerned, and that it is recognized generally here that, unique though the progress of the port of Cardiff has undoubtedly been, it might still have been greater under other circumstances, — I am forced to the conclusion that public interests are best served by trusts, wisely controlled ; for it goes without saying that the community of interests between the port and city is made very close, and, besides proving mutually beneficial to manufacturers, shippers and ship owners alike, tends to benefit commercially the city to a far greater extent than when the docks are privately owned, as in the latter case revenue is apt to be treated as legitimate profit, instead of for adding to or reducing the capital, according to the necessities of the case. U. S. Consulate, Cardiff, Aug. 13, 1895. 196 DOCKS AND TERMINAL FACILITIES. COPENHAGEN (Denmark). [The report of Robert J. Kirk, U. S. Consul.] Previous to tlie legislation which resulted in the establishment of the free port of Copenhagen, she is acknowledged to have been one of the most expensive ports in Europe ; now she ranks among the cheapest. To this fact and to her favorable position as a distributing centre, her situation on the Sound, the entrance to the Baltic Sea, being one of the most frequented ship routes in the world, must be attributed more than to any other circumstance whatever of com¬ mercial success she enjoys. Of course the management and control of the docks, wharves and quays enter as a factor, but to a much smaller degree. This man¬ agement is in the hands of experienced business men, fully alive to the sharp competition of the times, who put forward every effort to facilitate business. The ownership of wharves and quays is partly public and partly private, and up to this time the system has worked in perfect harmony. The warehouses in the whole port are private property, except those belonging to the custom house. The quays themselves are partly private and partly belong to the harbor committee, but a private warehouse may be erected on the public quay. Private warehouses are under no control except such rules as their owners may adopt ; the warehouses belonging to the custom house are, of course, controlled by the custom authorities. As to the com¬ parative merits of the private and public ownership of docks and quays, I am informed by an old established Arm that charges at the public quays are generally less than at private ones, say 16| ore per net registered ton, as compared to 25 ore. Within the free port the use of wharves and quays is regulated by the Freeport Company. Outside of the free port tliis use is regulated by the harbor coun¬ cil, consisting of the lord mayor, who is president, and two members appointed by the king, on recommendation of the minister of the in¬ terior, for a term of six years, six members elected by and from the city council for a term of six years, and four members elected by the Rigsdag for a term of three years, two by each house. This council decides all matters pertaining to the harbor, and its ruling must be had on all questions concerning the relations of the harbor authorities with the navy departiuent, or the city, and in the matter of regulations for the management of the harbor. liach member has the right to make propositions and complaints. The manage¬ ment of the harbor is conducted by a port captain, appointed by the DOCKS AND TERMINAL FACILITIES. 197 ministei' of the interior, ou the recommendation of the harbor council. He is responsible for the good order maintaiued in the roads and harbor, in conformity with the regulations and the annual budget. He attends to the correspondence and accounts, and is chief of the harbor police and employees. In the absence of the port captain the harbor master represents him. The interior harbor, the bridges and the roadsteads are under the jurisdiction of the harbor authorities aforesaid. The harbor is divided into four districts, for each of which a sub-harbor master is appointed, to keep order in the docks and at the quays. There has never been interference with the private ownership of the docks, wharves and quays, but the State is supreme, and can at any time take charge of same. Landing expenses are shared both by the vessel and cargo, the quay money being paid by the vessel and the warehouse charges by the cargo. Within the territory of the free port the revenue of the Freeport Company comes from charges levied on the cargo for storage and handling. The State railroad, both in and out of the free port, connects directly with the docks, so that vessels can discharge and receive freight direct from the trains. The Danish railroads being in direct communication with all parts of the continent and Norway and Sweden, through trains can be sent to any point desired ; but the great bulk of the traffic, both in and out of the country, is done by steamships. This follows naturally from the fact that Copenhagen is an insular city. 'Jlie system of lighterage is as yet in a state of crudity. There are two companies, but they are not of much importance in estimating the advant.ages and facilities of the port. Their charges in the harbor are 85 ore (23 cents) and in the roads Kro. 117 (31 cents) per ton. As a distributing centre there is no city of the Baltic or perhaps in Europe which can surpass Copenhagen. In the free port can be seen the latest and most practical appliances of machinery in loading, unloading, handling and storing cargo. Here the electric crane is a distinct feature ; of these there are about a dozen, moving on a track of their own along the edge of the docks. Their capacity is one and one-half tons. In a test before two of the members of the Massachusetts Board, whom I had the pleasure of accompanying on a visit to the free port, one of these cranes took up a beam of walnut, weight aliout five hundred pounds, from the second floor of the ware¬ house, swung round with it and lowered it to the water in the dock, thirty-two feet below, in twenty-two seconds. Those cranes are built up to the level of the second floors of the warehouses. 198 DOCKS AND TERMINAL FACILITIES. The uuloatliug and storage of grain is done altogether by maehin- ery. The grain is carried by a chute from the deck of tlie sliip to a belt running in a tunnel beneath the wharf. By this belt it is taken and emptied into a bin in the basement of the warehouse, and from this bin a second belt raises and distributes it to the loft desired. To load a vessel the grain is carried direct by chute to the hold of the vessel. In case the loft, where the grain may be, is not sufli- ciently elevated to cause it to run freely through the chute, it is first lifted by elevator to a bin in the top of the warehouse, a hundred feet above the wharf. Electricity is the motive power employed. Agriculture being the chief industry of the country, grain is the chief staple, while butter is the greatest item of export. For the last two or three years Denmark has paid great attention to stock rais¬ ing, and now exports large quantities of dressed pork and beef, which go chielly to England. U. S. CoxscLATE, Copenhagen, Nov. I, 1895. DUNDEE (Scotland). [From the report of John M. Savage, U. S. Consul.] Orioiuully Llie harbor affairs were administered by the town coun- cil of Dundee, under royal charters granted at various times, and particularly under that of Charles I., dated the 14th of September, 1(141, and continued to be so administered down to 1815. For some time previous to this the harbor had been neglected and allowed to fall into disrepair, a large proportion of the harbor revenue beiug diverted from harbor purposes and applied to the general expenses of the city. In proof of this fact, the gross sum received from harbor dues for fifty years, prior to 1815, amounted to £38,696 S.s. Aid., dur¬ ing which time there was expended on piers, etc., £9,408 10,s. 9d.. leaving £29,"227 12.s'. 7Jd., which was applied to the general uses of the, city. In 1814 considerable attention was directed to the question of improving the harbor and of obtaining a proper representation of the various interested classes on the harbor management. At this time the magistrate and town council had promoted a bill in Parliament for improving the harbor and for other pur[)oses. This scheme was deemed unsatisfactory by the leading merchants, manufacturers, ship owners, and otiiers interested, and public meetings were called, with the result that the proposed measure was abandoned, and a bill was ¡).assed constituting certain parties commissioners, who had DOCKS AND TEKMINAL FACILITIES. 199 power to execute certain improvements and to levy rates, etc., which act was to continue in force for twenty-one years. In 1830 an act was passed repealing the previous acts, and incorporating the trus¬ tees of the harbor of Dundee, which trustees by that name should have perpetual succession. By the terms of this act the harbor prop¬ erty was vested in the trustees, and they were authorized to com¬ pensate the city for the property taken over by them and for the right to levy dues, which after considerable negotiation was fixed at £27,500. Various acts were from time to time passed, increasing and en¬ larging the power of the trustees; and in the j-ear 18fi9 an act was passed under which the constitution of the Harbor Board was altered, and the membership was enlarged from twenty-one to thirty-two. In 1873 an act was passed transferring the Tay ferries, a large and important steam ferry across the river Tay, from certain mortgagees who held possession to the harbor trustees, the consideration being £20,000. The harbor trustees, as stated, consist of thirty-two members, as follows : six from the town council, three from the nine incorporated tr.ades, six from the Guildry Incorporation, one from the three united trades, one from the Seamen's Fraternity, four from the county of Forfar, three from the Chamber of Commerce, three from the ship owners, three from the harbor ratepayers and two from the munici¬ pal electors. Of the six members representing the town council, the lord pro¬ vost and the first, second, third and fourth bailies have seats at the Board by virtue of their office, while the sixth representative is elected annually. The lord dean of guild, the boxmaster of the fraternitj' of masters in Dundee and the convener of the nine incorporated trades also sit at the Board by virtue of their office, the other twenty-four members being elected annually. At the time of the agitation for a transfer of the harbor from the municipal authorities to an independent corporation, it was urged that the harbor was not a proper source of revenue to the city ; that the whole surrounding country had an equal interest, and that it was unfair to enrich the corporation at the expense of the harbor, which suffered in consequence. The chief advantage derived from the present condition of affairs is, that the revenue from the harbor is applied to the payment of the interest on the money borrowed for harbor improvement, to the creation of a sinking fund, to the main¬ tenance of the harbor in a first-class condition and to the working expenses thereof, and that a sufficient revenue is only collected to provide for these purposes. 200 DOCKS AND TERMINAL FACILITIES. The various railways have sidings alongside the quays, so that it is possible to load and unload ships from the cars, although this is only done in case of through rates. If you desire any further or specific information, I shall be glad to serve you to the best of my ability. U. S. Consulate, Dundee, June 27, 1895. DUNKIRK (Prance). [From the report of Benj. Morel, U. S. Consular Agent.] Dunkirk is the most northern town of France; the success of this port and constant progress of its trade are principally due to its exceptionally favorable geographical position, as it is the nearest port to tlic manufacturing and industrial towns of the north-east of France. It is in direct communication with those various large places, both by railroad and by canal ; all the quays are, by railroad, in communi¬ cation with the station, and the lighters get into the seven wet docks alongside the vessels through three different waterways. Those facili¬ ties, of course, contribute to a large extent to the development of the trade. The clocks, quays, wharves and dry docks are built by the gov¬ ernment, with the financial help of the town and of the Chamber of Commerce, and are under the exclusive control of the government, represented by the bridges and roads department. The various services, such as towage, slipway, gridiron, cranes, sheds on the quays, commercial guardians, loading, discharging gear, customs warehouse, actually are, or will be as soon as definitely organized, all managed by the Chamber of Commerce. Up to the present, over fifty millions of francs have been spent to do the harbor works ; same are paid by the government, but the money is advanced jointl}' by the town and by the Chamber of Commerce, through loans, and the needed funds to pay the interest and charges on such loans are secured by levying on the vessels visiting the port some dues with the sanction of the government. These taxes, under the names of "municipal tax" and "Chamber of Commerce tax," amount together to 70 centimes per registered ton, while a tax of 10 centimes per registered ton, called "harbor dues," is spec¬ ially appropriated to cover the expenses referring to the harbor's implements. The Chamber of Commerce, being placed directly under the gov- DOCKS AND TERMINAL FACILITIES. 201 eminent control, offers better guarantee than any private party of a good management for public interest. Any benefit made out of said management must be applied to the improvements of the harbor and to the increase in facilities of all kinds, or be applied to an abate¬ ment in the above-named taxes. This, of course, constitutes a most serious advantage over private ownership and management. The use of the docks and wharves is regulated by the government. According to the custom of the port, the cargo is received direct from ships' tackles by the receivers, and is sent direct into trucks or into lighters, or put into stores ; it may also remain at quay or be placed in the shed for some while, no charge whatever being levied on it, except the usual cost of discharging, the watching and tarpaul- ings when landed on the wharf, or the rent of the sheds, according to tariff. In the course of next year the new entrances to our docks (which are now being made) will be completed, and vessels of all sizes will go straight in dock upon arrival, without lightering, whatever may be the draught of water. Up to that time, however, ships drawing twenty-three to twenty-four feet have to lighter, and the lighterage is done either in the roads by special lighters, at the cost of about five shillings per ton, or into the harbor at lialf cost, at a special quay built where ships lie in soft mud with ten feet of water around them at low water. When according to the bill of lading the lightering expenses are to be borne by the cargo, it has been arranged with mutual consent that the said expenses would be paid in proportion by the Chamber of Commerce, corporation of town, ship brokers and the receivers of the cargo ; the object of« this being to manage the trade at this port, and lessen the charges to the largest possible extent. U. S. Coxsi'lar Agexot, Dunkirk, Aug. 8, 1895. FIUME (Austria-Hungary). [From the report of G. Gelletich, U. S. Consular Agent.] Answer to Question No. 1 : I attribute the success of our port in competition with other rival ports to facilitations granted by the royal Hungarian government, which tries with all possible care to get the trade of Hungary in Fiume. 202 DOCKS AND TERMINAL FACILITIES. Answer to Question No. 2; The physical features of our harbor enter into its success, in that it is well provided with quays, wharves, warehouses and everything used for the trade of a first-class port ; there are two lines of railroad, the State Railroad through Hungary and the Sudbalin Company line through Austria; coasting line steamers, well managed, as the dis¬ tance is shorter than to Trieste. Answer to Question No. 3 : Being a port under the Hungarian State property and administi'a- tion, the duty of the Hungarian government is to help the trade with its power to compete with other ports. Ansiver to Question No. 4 : Same as No. 3, there being no private property here. Answer to Question No. 5: The port of Fiume is the property of the royal Hungarian State. Answer to Question No. 6 ; The port wharves, quays, etc., are administered by the royal Hun¬ garian marine government, which appoints the harbor master and other employees for the harbor service ; the port rules and regula¬ tions are made out by the said government. A^i.swer to Question No. 7 : No private ownership in this port. Ansicer to Question No. S: Commercial advantages under State administration are great; only the State ownership could give such facilities for the port of Fiume ; impossible for private to do so. vin.snrc)" to Question No. ,9 .• No former owners existed ; the port was constructed new, with State funds. DOCKS AND TERMINAL FACILITIES. 203 Ansiver to Question No. 10 : The principal part of the revenues comes from charges on the vessels. Answer to Que,stion No. 11 : There is a direct railway connection with the wharves and quays from the main lines, and vessels could discharge and receive freights direct from trains. Ansiver to Question No. 12: No local railroads exist here. Ansicer to Question No. 13 : The greatest part of the success of our port is due to the Hun¬ garian State Railroad. The administration of the State Railroad has accorded great facilities and reduction of freights for merchan¬ dise brought to and from Fiunie. There are two lines of railroads, one belonging to the Hungarian State through Hungary, and the other belonging to the Sudbalin Company through Austria. The Hungarian State Railroad charges for ten-ton loads from Budapest to Flume one hundred and sixty-eight florins. When the goods arrive in Fiume and are shipped on board vessels for expor¬ tation, the railroad administration returns to the merchant forty-eight florins for the ten tons of goods. Answer to Question No. 11; No lighterage system in our port; all the loading and landing operations are done alongside the quay. Anstver to Question No. 15 ; The terminal and distributing facilities which this port possess are the extensive lumber and timber yards in proximity to the quays and wharves, and a number of bonded warehouses where the goods lie waiting shipment. 204 DOCKS AND ÏEIOIINAL FACILITIES. ^Inswei' to Question Xo. 17 : The chief staples of trafile at our poi't are as follows : importation goods, — rice, petroleum, coal, pig iron, wine, iron ore, jute, etc.; exportation goods,—wood (staves, timbers, deals, etc.), grains, flour, beans, etc. U. S. Consular Agency, Fiume, Aug. 6, 1895. GHENT (Belgium). [From the report of Henry C. Morris, U. S. Consul.] Imniediately upon receipt of the instructions requesting this report, a translation of the interrogatories was furnished to the local authori¬ ties ; these latter have kindly submitted to me answers embodying most of the information required ; only in a few instances are their replies supplemented or explained in accordance with my personal observation. Answer to Question No. 1 : The success of the port of Ghent must be attributed to the perfec¬ tion in every detail of its appurtenances and appliances, such as wharves, slieds, terminal facilities, trans-shipping machinery, light¬ ing and dry docks ; to the economic prosperity of the cit3' of Ghent, a great industrial and commercial centre ; to the very favorable schedule of harbor dues, which are much more reasonable than in competing ports. ^[«.suce/' to Question No. 2 : The success of this port is largelj' due to its location. On the one hand, Giient is the centre of a network of railway lines, it is situated in the heart of an agricultural district and is engaged in large man¬ ufacturing industries; on the other hand, it is one of the nearest continental [lorts to London, whither it sends daily large cargoes of natural and manufactured products. In return, it receives much mer¬ chandise for distribution in Belgium and north-eastern France. Its local phyeical features are also very favorable, while being able to conduct extensive trade by its sea canal. It is likewise the centre of a system of inland canals, by which it collects and distributes the merchandise brought into its harbor. DOCKS AND TERMINAL FACILITIES. 205 Aiistver to Question No. 3 : As all dock and harbor management in Belgium is public, it is im¬ possible to draw any comparison such as is involved in this question. The public authorities are always presumed to act for the best and for the ultimate success of their charge. Answer to Question No. 4: This question must be answered in a manner similar to the preced¬ ing. All maritime installations are public property. The port is managed in the general interest of the country, rather than as a commercial enterprise. The public authorities watch carefully over the maintenance of the tariffs, regulations and customs of the port. They are generali}' in a position to make sacrifices, if necessary, to maintain the prosperity of their port. Answer to Question No. o : The ownership and control is entirely public, the docks and appur¬ tenances belonging to the city of Ghent and being under its manage¬ ment. Answer to Question No. G : The city council has entire control of the docks, wliarves, quays and all apj)urtenances of the port ; it is the final arbiter of all ques¬ tions relating thereto. Aiisicer to (¿uestion .\o. 7; There is not, and never has been, strictly speaking, any private ownership or control. The present system has existed unchanged in its general features since 1 71)"2. The general and municipal author¬ ities always have been supreme. For these reasons, it is impossible to answer the (juestious. Ansioer to Question No. 8 : Private ownership not existing, a comparison cannot be made. There is not any experience upon which to base a conclusion. 206 DOCKS AND TER^NIINAL FACILITIES. Ansiver to Question jVo. ,9 ; This question, iuvolving, as it does, a review of Belgian legal pro¬ cedure, would demand for a satisfactory answer an exposition of details exceedingly tedious and complicated. In brief, however, it may be said that the property was appropriated by public authority by right of eminent domain and for reasons of public utility. The former proprietors Avere indemnified according to Belgian legislation. The public authorities supplied the necessary funds. Ansieer to Question Xo. 10: Only one single obligatory due, or charge, exists at this port. It is the Avharfage due, and gives a vessel the right of mooring and of proceeding to all the operations of loading and unloading. The cargo is not taxed. The administration of the port places at the disposition of the ships sheds, appliances, lights and warehouses, at charges established according to a fixed tariff. The use of the ma¬ chinery and of sheds is optional. Answer to Question Xo. 11 : Yes. The port is connected by railway with all the State and international raihvay lines. There are several special railway sta¬ tions. Tracks run along the quays and Avind around or under all sheds and warehouses. Steam and hand cranes overhang the tracks, and permit the loading and unloading direct of A'essels from trains, or vice versa, or from or onto the docks. ^ínsícer to Question Xo. 12 : There is railro.ad communication, as previously stated, but it forms a part of the general raihvaj' system. The Belgian gOA'ernment owns and manages all these lines and their stations ; the latter are also used by the private railway companies. Answer to Question Xo. 13 : There exists a close relationship between the prosperity of the port and the railway. Under present commercial conditions one is not possible without the other. DOCKS AND TERMINAL FACILITIES. Ansiver to Question No. 14 : Belgium possesses iunumerable canals and many rivers, upon rvliicli transportation by boat is highly developed. This service of boats is in the hands of private companies or persons, who contract according to circumstances. Competition of boatmen among them¬ selves always assures reasonable lighterage charges when this ex¬ pense becomes necessary. Ansirer to Question No. l.~> : Fully as good, if not better. The terminal arrangements are ac¬ cording to a highly practicable system. Answer to Question No. Id: Almost all the ports of Europe have expended large amounts of public funds to improve their harbor, docks and appliances. The results have fully warranted these outlays. Answer to Question No. 17 : The chief articles imported at Ghent are lumber, coal, raw textile materials, oats, wheat, nitrates, sulphates and raw cotton. After the completion of the canal improvements now under prog¬ ress, Ghent will become the principal continental centre for the impor¬ tation of raw cotton. The principal articles exported from here are raw mineral sub¬ stances, stones, vegetables and fruits, phosphates, sugar, beet roots, coal, waste papers, rags and threads. Anstver to Question No. 18 : In reply to this general inquiry, it m.ay bo profitable to give a brief description of the pcSrt of Ghent. Fortunately for our purpose, Mr. E. Braun, engineer-in-chief of the city, has lately published an article upon this subject. We give herewith a translation : — The port of Ghent is connected with the navigable Scheldt by a canal, commencing at Terneidvcn, which measures about ¿0 miles in length. Its cross-section measures h.Vj feet at the bottom, is.'ij ibet at the water level and 21 j feet in dc])th. Tlie entrance, is by the lock at Tcrneuken, The canal is divided into two different stages by a lock located at Sas de Gand. A convention has just been concluded with the Dutch government for the 208 DOCKS AND TERMINAL FACILITIES. construction of a new lock at Terneuken, by which a single level will be established throughout the length of the canal, with uniform depth of 21| feet The width of the canal at the bottom is to be til) feet. The lock will be f)lf feet in width and 459 feet in length. The work incident to thi.s important improveiuent will be undertaken immediately, if. as it is now conlidently e.vpccted, the Legislature votes the necessary credits. The port of Ghent includes four basins. First there is the ba.dn of com¬ merce, about 5,250 feet in length and 82 acres in area. This basin has three diilercnt widths: 197 feet for the tirst 1,640 feet, 3(51 feet for the 1,312 feet following and 295 feet for the remainder of its length ; ne.vt is the lumber liasin, which measures 721i by 3801 feet, or about 274,360 sijuare Ibct in area; then the Tolhins basin, which is 1,312 feet in length by 414 lectin width, with an area of 543.168 square feet; and fln;dly the basin of the outer harbor, which measures 3,641 feet in length, by an average width of 2Ü5J feet, having an area of 24| acres approximately. The total area of all the basins is therefore about 74 acres. The length of the quays is 14,452 feet. The length of accostable embankments is 6,104 feet. The area of covered sheds is about 5 acres. The area of warehouses is likewise 5 acres. Finally, there exists a four-story warehouse, occupying | of an acre. 'I'lie platform of the quay of the outer harbor measures 295J feet in width, including a track for the cranes, two railway tracks for loading and unloading, warehouse sheds 141 feet in width, two additional railway tracks, two switching tracks, and finally a wagon road 50 feet in width. On this platform are built three warehouse sheds with cellars and ujjper stories, two warehouse sheds of several stories without cellars and one cov¬ ered shed. Each of the warehouse sheds measures 328 feet by 141 feet. Those with cellars cost 12 per sipiare foot; without cellars, cost f 1.67 per square foot. All are furnished with hjxlraulic elevators. The covered shed measures 755 by 76 feet, and cost 51 cents per square foot. Three ton cranes, moved by steam, run on the track alongside the quay; they cost f2,.509 each. Finallv, a movable 25-ton crane completes the outfit. This crane is con¬ structed so as to discharge by dumping directly into the hold of vessels cars loaded with coal, gravel, mineral, etc. It cost f8,685. 'fhc lumber basin is surrounded by stone embankments which rest on piles, at the water level, 6| feet in width ; upon this piling ai-e arranged at short intervals discharging piers with perpendicular walls. This arrange¬ ment i)ermits steamers to discharge before the piers and sailing ve.s.scLs before, tlic slone embankments. It is highly appreciated by vessels engaged in the, lumber trade. The platform conlains covered sheds 78f feet in width, costing 43 cents ¡)er s(iuare foot, a road 33 feet in width, two railway tracks and grounds rented for lumber storage. The basin of commerce is surrounded partially by |)crj)endicular quays, partially by accostable embankments. There exists on the loft bank of this a 07i No. 1 : The success of this port in coinpetitiou ivith other ports is largely due to the wise mauagemeut and energy of the officers of the Cl3'de Trust, and the growth and business of Glasgow. The physical feat¬ ures of the harbor are against it. It is twenty-one miles from the open water of the Firth of Clyde, and has at least eighteen miles of a narrow shifting channel of a river before its haven can be reached. I should saj' that the chief essential of its success is its management. The ownership of the docks, wharves and quays is entirely with the Clyde Trust, and this is undoubtedl}' a great benefit. The whole control is in this one public corporation, with no motive but the general public good, and its rates and dues can be and are uniform, and there is no clash or conflict between contending interests, as there would be in private ownership. This will answer the first six questions. Answer- to Question No. 7 : Private ownership and control of docks, etc., have not been inter¬ fered with by legislation, as none exist. Ansicer to Question No. 8 : Public ownership of the docks, etc., gives clieaper rates and dues and better facilities in every way for the purposes of commerce. Aiisice/' to Question No. 9 : The land was purchased from the former owners, and the funds were borrowed for this purpose. Answer to Question No. 10: The revenue from the docks and quays comes about one-third from the vessels and two-thirds from the cargoes. The cargoes pay the landing charges. The Clyde Trust is not at fbe expense of landing tlie goods. This is done by the ship owners, who employ their own men for that purpose. Answer to Question No. 11 : There is direct railway connection with the docks and quays, but this connection has not been much used excei)t in the matter of coal, ores, etc. DOCKS AXD TERMINAL FACILITIES. 215 Answer to Question No. 12: So much of the local railway connecting with main line, within the lands of the Clyde Trust, are owned by the trust ; but the landed possessions of the trust are of but narrow width, as the harbor is built from a narrow river in the very heart of the city, and laud has been acquired with difficulty. Ans2cer to Question No. 13 : The success of the harbor has not been dependent to any great extent upon its railway connections. Ansiver to Question No. 17 : The chief staples of traffic at this port are coal, dry goods, iron and steel, Indian corn, provisions, wheat, wheat flour, timber and ores. In making this report I have been much indebted to the officers of the Clyde Navigation Trust, who have furnished me with every facility. U. S. Consulate, Glasgow, Oct. 17, 1895. The following communications were also received : — Clyde Navigation, Secretary'.s Office, Glasgow, July 8, 1895. Clinton White, Esq., Slate Board on Docks and Terminal Facililies, Boston. Dear Sir: — I was duly favored with your letter of 12th ultimo aud enclosures. Instead of answering categorically the series of eighteen leading questions your Board have formulated, I think it will be more satis¬ factory and probably serve your purpose better if I give you some general information about this port, from which your Board will be able to draw their own conclusions. The affairs of the Clyde navigation, embracing the port of Glas¬ gow, are administered by a body of twenty-five gratuitous trustees, whose powers and duties are prescribed in their various acts of Par¬ liament, chiefly the consolidation act, 1858, under which the present constitution was created. The trustees are assisted by a staff of officials whom they appoint, viz., the treasurer, the engineer, the harbor master, the collector aud the writer. 216 DOCKS AND TEBMINAL FACILITIES. Prior to 1858 the navigation was managed mainly by the town council of Glasgow. The present representation, created in that year, consists of the lord provost of Glasgow, who is ex officio chair¬ man of the Board, and nine councillors sent by the town council; nine gentlemen who are elected by and represent the ship owners and rate payers of the port ; two members each elected by the Cham¬ ber of Commerce, the Merchants' House and the Trades' House of Glasgow. From the last publislied accounts of the trust for the year ending June, 1894, your Board will gather information regarding the trade and revenue of the port, along with the indebtedness to the public. There are no other docks, either public or private, at Glasgow. The port is not a commercial undertaking, in the ordinary sense, conducted for profit, but is managed so as on the one hand to keep the dues and rates on vessels and merchandise at as reasonable a figure as possible, and on the other hand to meet the interest on the borrowed capital and all other outgoings, and leave a fair margin year bj^ year. After the interest on borrowed money, the chief item of annual expenditure is that for the deepening and keeping navi¬ gable of the eighteen miles of waterway under the charge of the trustees. The trustees have had to pay for all the land on which their docks and quays are formed and also for all land required for the widening and deepening of the river, and, of course, for all the works and equipment of the port. Although the corporation of Glasgow were the originators of the Clyde Trust, and mainly controlled it until 1858, it was never at any time part of the corporation property in connection with which any assessment could be levied from the citizens in respect either of own¬ ership or occupancy of property ; and the navigation still remains based solely on its own credit, the large and increasing revenue and • wise administration, together with the commercial prosperity and development of Glasgow and the west of Scotland, being the main elements of security. The trust contributes many thousands of pounds annually in assessment to the revenue of the city. I forward a set of documents, consisting of copies of all the Clyde navigation acts, the last published annual accounts, the standing orders, the by-laws, the rates book, a map of the harbor and a map of the river Clyde, under the jurisdiction of my trustees. For detailed information with regard to terminal and distributing facilities, I would refer you to description under "Glasgow," in the "Shipping World Year Book," which doubtless you will have before you in connection with your investigations. DOCKS AND TERMINAL FACILITIES. 217 The trustees do not load, unload or distribute cargo, the ship owners either providing their own quay staff and laborers or employ¬ ing stevedoi'es who are licensed by the trustees. The railways have direct connection with the harbor, but do not perform any services except haulage, unless at the depot known as the general terminus, where there are cranes belonging to and wrought by the company in the loading of coal and discharge of ore and limestone. The harbor is equipped with sheds, cranes, tramways, etc. No separate rates are levied for the sheds, but charges are made for cranage and wayleave over the tramways. I need hardly say that I shall be glad to afford you any further information or assistance in my power, at any time during the course of your Board's inquiry. I am very truly yours, T. Iv. Mackenzie. Clyde Navigation, Secretary's Ofpice, Glasgow, Jan. 16, 1896. Clinton White, Esq, State Board on Docks and Terminal Facilities, Boston. Deak Sm : — I must apologize for not earlier replying to your letter of 16th ultimo. I have had the statistics in the statement annexed to your letter checked and filled in, so far as our records enable us to complete the figures, and you will find annexed hereto a clean copy thereof. DATE. Popula¬ tion. Length of Quays. Area of Harbor. Depth, H. W. Ordinary Current Expendi¬ ture. Revenue. Total Goods Tonnage. Yards. Acres. Ft. In. 1800, .... 77,385 382 4 8 6 _♦ £3,400 _* 1820,.... 147,043 697 7 13 6 £7,516 8,070 _* 1840, .... 255,650 1,973 23 18 70,248 49,665 —* 1860,.... 395,503 4,376 70 22 86,256 105,768 1,366,327 1880, . 578,156 8,422 140 23 222,430 223,709 2,653,088 1894, .... 677,883 10,853 153 26 349,354 371,976 5,070,392 1895, .... 686,000 12,178 190i^ 25-31 344,015 353,813 4,504,962 * These particulars cannot now be ascertained. By the favor of the author I am enabled to forward a volume entitled " Statistics of Glasgow, 1885-91," by the city chamberlain. 218 DOCKS AND TERMINAL FACILITIES. from which jmu will glean a great deal of information regarding the industries and commerce of the city and port. I shall be very glad to receive a copy of the report of your com¬ mittee after it has been presented. I am very truly yours, T. R. Mackenzie. HAMBURG (Germany"). [From tlie report of \V. H. IIohektson, U. S. Consul.] Äns7i:er to Question Xo. 1 : To a combination of its geographical features, the advantages of its free port, and the ability and enterprise of its business people. Ansiver to Question Xo. 2 : To a considerable extent. In the first place, the position of Hamburg with regard to the continent of Europe is favorable to its growth as the leading receiving and distributing centre of north¬ eastern Europe, especially in connection with the English, Scandi¬ navian, Russian, German and Austrian trade, both inwards and outwards. In the second place, Hamburg has a naturally good harbor, which has been inateriallj' deepened and improved in every direction since the opening of the new free port here in 1888. Not only has a prac¬ tically new harbor been actually constructed in the direction of size and depth, but with the building of the same have arisen innumerable quays and warehouses, possessing all the most modern facilities for the loading, unloading and storage of merchandise of all sorts. Ves¬ sels have recently arrived in this harbor drawing as mucli as 26 feet 3 inches. There is a serious and constant drawback, however, to the commerce entering and leaving this port in the largest vessels, in the shape of a number of sand bars occurring between here and Cuxhaven, at the mouth of the Elbe. Beginning at Hamburg and going down the river, the first shallow spot is reached at Blankenese, a distance of about 14 miles from the city; the second, at Schulau, 7 miles further; the third, near the Lube, about 3 to 4 miles further down ; the fourth is the Pagen bar, about 42 miles from Hamburg ; while the fifth, at Osteriff, is about 72 miles from the city. Larger vessels, drawing more than 18 to 20 feet, can only cross these spots with a rising tide, and, at the earliest, about two hours before high tide. The so-called " Schuelldampler," or fast mail steamers of DOCKS AND TERMINAL FACILITIES. 219 the Hamburg-American line, the " Fürst Bismarck," " Normania " and "Augusta Victoria," can never risk coming up into the harbor when having their full complement of coal for a voyage. When fairly empty they experience no difficulty in reaching the city. The five new cargo steamers of the same line, the "Patria," "Persi," "Prus¬ sian," " Palatia " and " Phœnicia," when fully loaded, can barely cross these bars. Hence the fast steamers always discharge their passengers at Cuxhaven, and come only up the river to Brunshausen (some 22 miles below Hamburg), where they take in their coal for their outward trip, and then again drop down to Cuxhaven to receive their outward-bound passengers. In the same way, to avoid any risk of running aground, the large freight steamers nearly always complete their cargo below the worst of these sand bars. During the preva¬ lence of an east wind there is an abnormal lack of water in the Elbe, and shipping is often seriously inconvenienced, or even entirely sus¬ pended, for the largest vessels during such a period. A new large steamer of the type of the above-mentioned five freight boats is at present being built for the Hamburg line. Although she will be one of the largest vessels afloat, and have a carrying capacity of about 12,000- tons dead weight, she will draw a trifie less water than the five steamers above mentioned. Another disadvantage to shipping is to be found in the large quantities of ice, which in severe winters often become a serious obstacle to shipping. For the purpose of relieving at least some of the vessels of the dangers, inconveniences and delays attending such conditions, it was decided to construct a new harbor at Cuxhaven. This harbor, whicii, like most of those at Hamburg, is cut out of the solid bank of the river, and is bordered on three sides by stone quays, will most likely be completed next autumn, and will be used principally by the largest steamers of the Hamburg-American line ; in fact, tlie intention is to despatch the express steamers of this line from there altogether in the future. But besides, the new harbor will serve as a port of refuge for such vessels as are unable to pass up to Hamburg on account of the ice. In the third place, the situation of Hamburg on the Elbe is a specially favorable one, for an immense trade with the interior of Germany and Austria is carried on up and down this river and its tributaries by means of a large fleet of barges and lighters ; and Hamburg happens to lie exactly at the junction of the com¬ merce of the upper with that of the lower Elbe. Here the river navi¬ gation by these small craft has to end on account of the size of the river, strength of the currents, rise and fall of the tide, etc., while here the sea navigation, so to speak, begins. The fact that Ham¬ burg, instead of Cuxhaven, has become the chief sea-port of Germany, 220 DOCKS AND TERMINAL FACILITIES. is perhaps more largely traceable to these conditions than to any others. The advantages and inducements to trade held out by the cus¬ toms exemptions and other benelits of the free port of this city can scarcely be numbered among the physical features entering into tlie success of the port, further than that, as already remarked, the construction of the new free port in 1888 gave rise to many artificial improvements in the Iiarbor. .Ic.Sirc/- h) (¿nextion No. 3: There are no docks and wharves here, such as those in ports like New York and Liverpool. Instead of these, there are only quays ; and the success of these is affected favorably ouly so far as their good and practical management and control by the municipal author¬ ities brings it about. ^líísioer to Quextion iVb. 4: It is not thought that it affects it materially. ^bisicer to Qiiextion tXo. 5: It is entirely public, with two exceptions, — the Pterson quay and the Petroleum harbor. The former is leased to the Hamburg-Ameri¬ can line, and is managed and controlled by it, while the latter is rented by the representatives of the Standard Oil Company. All vessels bringing petroleum into the port of Hamburg must discharge their cargoes in the Petroleum harbor. It is very carefully guarded against danger from fire, and all vessels entering it are governed by stringent precautions and rules. vlíí.S!t'er to Qm'xtion yo. 6: The use of tiie quays is regulated by the quay department, which is a special brancli of the municipal government. Its direct chief is tiie quay director, who is subordinate to the senator at the head of the department for commerce and industry. A)i.vi:er to Qucxtion Xo. 7 : The quays have been built and always owned and controlled by the city, with the exceptions above noted. DOCKS AND TEKMINAL FACILITIES. 221 AnHicer to Question Xo. 8: Probably none, except that public ownership means lower expenses of administration and lower profits to the owners than private parties would be contented with. ^iusirer to Question Xo. 9: There were no former owners. The government of the city or State of Hamburg has always owned the quays. Ansirer to (Question Xo. 10 : The principal part of the revenue of the quays comes from charges on the cargo, which also pays the landing charges. Ansirer to Question Xo. 11 : Yes ; with one or two unimportant exceptions. Ansirer to (Question Xo. 12 : Yes; and it is owned and controlled by the State of Hamburg. Its freight rates are based upon the weight of the goods. Ansirer to Question Xo. 13 : None as compared with similar European ports, which have equally as good railroad connections. Answer to Question Xo. 14: Yes. All of the cargoes going by water into the interior are car¬ ried in barges and lighters, which serve the purposes of both trans¬ portation and lighterage. These barges or lighters help to materially reduce the amount of actual quay surface tiiat would otherwise be indispensable to the commercial needs of the port. They are like so many little floating quays, that are moved up to and withdrawn from vessels at will. The cargoes that they bring down for export are put into the vessels directly from the barges or lighters without the use of the quays, while in most cases those which they are to carry up the Elbe are unloaded directly into these from the larger vessels. Hence the term "lighterage" at this port applies as well to the loading of vessels as to the unloading. Besiiles the lighterage done through the freight craft that ply regularly up and down the Elbe, there are many 222 DOCKS AND TERMINAL FACILITIES. other lighters used here for loading and unloading vessels, as well as for carrying cargoes to the various warehouses lying along the river and on the numerous canals intersecting the city and the free port. The whole harbor and free port have been constructed with a view to the use of these lighters, and the chief advantages of the same are their cheapness and carrying capacity, as compared with vehicles, the lightening of the street trafile, the saving of time and often of the reloading and re-unloading and the reduction of the quay space which would otlierwise be necessary. Besides, distances from vessels to warehouses, and vice versa, are often shortened by going through the canals, as compared with the routes for vehicles. Practically all sailing vessels are loaded and unloaded by lighters, on account of the greater expense which tlie use of the quays would entail. These vessels lie alongside and are made fast to rows of what are called " dolphins." They are not anchored out in the harbor, as with us. Sometimes a vessel is obliged to use the quays and their cranes, when her cargo is such as cannot be discharged into, or loaded- from, lighters, as in the case of heavy lumber, machinery, guns, etc. The lighters are also largely used for carrying cargo and coal to and from the larger vessels that cannot cross the sand bars with full freight, or even with their usual complement of coal, as in the case of the fast mail steamers of the Hamburg-American line. Answer to Question Xo. 15: None. Answer to Question Xo. 16: No; not accurately. Answer to Question Xo. 17: Sugar. Next in order of importance would probably come coffee, petroleum, nitrate and logwood. Answer to Question Xo. 18 : None of special pertinence. On November 27, I forwarded to the department of State a lengthy and exhaustive report on the general subject of tiie free port of Hamburg, covering the period from the earliest beginning of its history to the present date. This report will most likely ere long be printed and publisiied in the monthly consular reports, aud will, I think be found to contain much in the line of the DOCKS AND TERMINAL FACILITIES. 223 foregoing inquiries, other than that which has been directly inquired about. It is therefore suggested that this report be read in connec¬ tion with the other. It may also be pertinent to mention, in conclusion, that during my absence last summer, two members of the Massachusetts State Board on Docks and Terminal Facilities, Messrs. J. R. Leeson and Wood¬ ward Emery, visited this city for the purpose of personally inspecting the arrangements of this port, on which occasion they were shown the entire harbor, with all its quays and terminal facilities, by my vice-consul. I feel sure, therefore, that these gentlemen will be in a position to elucidate verbally any points in this report which have, perhaps, not been discussed in detail. U. S. Consulate, Hameurg, Dec. 31, 1895. HAVRE (France). [From the report of C. W. Chancellor, U. S. Consul.] In compliance with the request contained in your circular letter of July 12, 1895, I have the honor to communicate the following report on the subject of the docks at this port, and to reply seriatim to the questions prepared by the IMassachusetts State Board on Docks and Terminal Facilities. Anstcer to Question No. 1 : To its location and accessibility; to its small port charges; to its direct communication by rail or water with the manufacturing and agricultural districts of France, England, Belgium and Holland, and its proximity to Paris ; to its excellent harbor and docking facilities ; to its numerous steamship and sailing vessels departing from and arriving at the port, and trading regularly with the principal ports of the world, notably those of France, England, Germany, Norway, Sweden, Denmark, Holland, Italy, Austria, Russia and America, the frequency being in the order named. Ships, after debarking their cargo, can remain at the port an unlimited time, awaiting freight, repair or final disposition, witliout paying any dock or harbor dues, the tonnage dues being paid on arrival in the docks. Below is the schedule of port charges. The law of Jan. 30, 1892, fixes the quay charges for France 224 DOCKS AND TERMINAL FACILITIES. and Algeria, on ships coming from foreign countries or from the colonies and possessions of France, loaded or partly loaded, as foiio-ws : — From European countries, or countries bordering on the Mediter¬ ranean, at ten cents per registered ton of the vessel. From the provinces of ail countries, twenty cents per registered ton. Vessels conveying passengers pay port dues only on the number of passengers, horses and carriages which they bring. The law of July 29, 1889, provides that vessels carrying passen¬ gers be required to pay quay duties only on the number of passengers, horses and carriages on board, and on the quantity of merchandise which they carry, provided the gross weight of such merchandise, cal¬ culated on the basis of five hundred kilograms to the ton, does not represent one-tenth of their gross tonnage. If the merchandise on board exceeds oiie-tenth of the legal tonnage, quay charges will be made on both the quantity debarked and that remaining on board to be carried to another port. Charges on the ship itself are made according to the legal tonnage. For French ships this tonnage is established in conformity with the process of gauging known as Moorsom's method ; for foreign ships by the same method, unless otherwise provided by treaty. This charge applies to both French and foreign ships. Ships of war, pleasure yachts and ships entering the port without debarking any part of the cargo are not subject to the charge. The Chamber of Commerce of the city of Havre, with the approval of the minister of commerce, made, on the 31st of August, 1893, the following modification for the port of Havre : — (1) Vessels beginning their voyage, or having their destination outside of Europe, pay eight cents per registered ton quay duties ; (2) vessels beginning the voyage in France, and h.aving their desti¬ nation a European port, or a port in Africa or Asia or on the Medi¬ terranean Sea, pay six cents per registered ton; (3) vessels fully loaded, or loaded to the extent of nine-tenths of their carrying capacity, with cereals (wheat, barley, oats, corn and rye), timber from the north of Europe, fertilizers, co.al, iron ore, mineral oil and ice, pay eight cents per registered ton. A reduction of thirty per cent, on the established tariff is made for vessels belonging to a regular line of navigation having at least monthly departure from this port, and forty per cent, for vessels belonging to a regular line when the departure is weekly, thirty per cent, on vessels when they are not more than two-tiiirds loaded, fifty per cent, on vessels bound for Honlleur, via the canal. Vessels belonging to or employed by the government are free from port dues. DOCKS AND TEEMINAL FACILITIES. 225 Answer to Question No. 2 : To the extent vouchsafed by a broad, accessible harbor, deep still water, exceptional facilities for landing and handling goods, exten¬ sive sheds, well-planned and secure docks and quays, with solid stone facing and coping, clean water in docks, excellent potable water, abundant provision market and a reasonably clean city. Answer to Question No. 3 : To the extent that may be reasonably expected of liberal business¬ like dealing upon an established basis of exact justice to all and partiality to none. The management is under natural regime by government officials, the minister of public works being the supreme authority. Answer to Question No. 4 : Answer as above, the ownership being by the government. Answer to Question No. 5 : Answer as above. Answer to Question No. 6: Under the control of the chief engineer of the bridges and roads, appointed by the government. Anstuer to Questions Nos. 7, 8 and 9 : Practically answered above. Owned by the government, under supervision of the municipal police. Answer to Question No. 10 : Nocharges on cargo ; port and dock dues paid by the ship until cargo is discharged ; after this, no charge. (See rules and regula¬ tions under Question No. 2.) Answer to Question No. 11 : There are railway connections with all docks. The tracks are also laid under the principal sheds, and cargoes can be received or un¬ loaded directly from the ship into the cars, or vice versa. All rail¬ roads under government control. 226 DOCKS AND TERMINAL FACILITIES. Ansiver to Question Xo. 12; Answer as above. xinsieer to Question No. 13: In the ratio of the convenience and economy of loading and unload¬ ing cargoes on the spot, and with only one handling. Ansioer to Question JSfo. 14: No lighterage. All cargoes discharged on the quays and for the most part under sheds. Ansiver to Question Xo. 15 : Deep water leading directly into the docks; safe moorage for all vessels ; great facilities for handling goods ; steam and electric cranes; floating pontoons with steam cranes; electric lights; pro¬ tection against weather ; direct and immediate connection with rail¬ way, canal and river Seine. Ansiver to (Question No. 16: No answer. Answer to Question Xo. 17 : Exports from France and imports from the principal countries of the world. U. S. CoxsuLATH at Havkh, Aug. 8, 1895. HULL (England). [The report of Goiidon B. Daniels, U. S. Acting Consul.] Before answering separately the interrogatories forwarded for my consideration and report, it may not be either uninteresting or unin- strnctive to describe very briefly the origin and character of the Hull dock s3'stem. Tlie first dock was built more than a century ago, by a company incoriiofiited as tlie Hull Dock Company. The dock was constructed on the site of a portion of the old walls and fortifications of the DOCKS AND TEEMINAL FACILITIES. 227 town, aud the company was assisted by concessions made by the Crown and by the municipal corporation. In course of time this dock was followed by two others, following the course of the old for¬ tified walls in a southerly direction to the Humber, with a fourth dock branching westward. Prior to the construction of these docks the shipping of the port had no other accommodation than the river Hull, or "Old Harbor," as it is popularly called, and which empties itself into tlie Humber. The whole of the old or historic town of Hull is insulated bj' these docks and the harbor, bridges affording means of communication between the old aud newer portions of the borough. The town docks were followed by a dock eastward of the town, with au entrance from the Humber on the south and from the old harbor. For many years these docks served the commercial and trading re¬ quirements of the port, but, as the size aud tonnage of vessels in¬ creased, it became necessary to provide deeper dock accommodation. The result was the construction by the dock company of an extensive dock on the western foreshore of the Humber, and this was followed by another, or what may be described as an "extension dock," in the same westerly direction. The docks in this direction — the upper por¬ tion of the Humber — have been supplemented by a very large fish dock for the accommodation of the fishing fleet ; and at the present time the North-eastern Railway Company, now the owners of the docks alluded to, have in course of construction an extension fish dock, demanded by the requirements of the fishing industry. Until 1880 the dock estate was entirely owned by the Hull Dock Company, and the North-eastern Railway Company had a monopoly of the carriage of goods to and from the port, save and except where the canals aud waterways competed with them. The North-eastern Railway Company invested largely in dock shares, as did several other railway companies, and were represented by directors on the Dock Board. The merchants and traders generally, as well as the ship owners, complained of the high rates of railway carriage and dock charges ; and in 1879 a formidable movement was commenced for the forma¬ tion of a new dock company, with an independent railway. Notwithstanding very strong opposition in Parliament, the pro¬ moters succeeded in obtaining a bill authorizing the new company to construct the Hull & Barnsley line and the Alexandra dock, which is the largest and deepest dock in the town. The new dock is built on the eastern foreshore of the Humber, that is, nearer the sea, and not far from the eastern dock built by the old companj'. The immediate effect of the opening of the new (Alexandra) dock and the independent line was to divert business to a very considerable 228 DOCKS AND TEEMINAL FACILITIES. estent from the old docks and from the North-eastern Railway. The dividend earning power of the dock company was reduced to nil, and, being utterly unable to raise money to enable needful im¬ provements to be made in the facilities at the docks and to keep their estate in good condition, negotiations were entered into between them and the North-eastern Railway Company for the purchase of their undertaking. Eventually the transfer of the docks was agreed to, the North-eastern giving for every one hundred pounds' worth of shares in the dock estate stock representing thirty pounds. The transfer of the docks to the North-eastern was opposed by the Hull corporation, but mainly with the object of securing certain guaran¬ tees as to future improvements and facilities. The bill, which was jointly promoted by the old dock company and the North-eastern Railway Company, was sanctioned by Parliament, and the railway company now own the whole of the docks, with the exception of the Alexandra dock ; that is to say, the old town docks, comprising Queen's dock. Prince's dock. Railway dock and Humber. dock (which, with the old harbor or river Hull and the river Humber, make the old town an island) ; the western docks, comprising Albert dock, William Wright dock, St. Andrew's (fish) dock, the extension (fish) dock and the Victoria dock (the eastern dock near to the Alexandra dock). I may here state that, in view of the necessity for deeper dock accommodation in so far as regards the North-east¬ ern Railway's system, it is intended to apply to Parliament in the next session for authority to make a better entrance to the western docks, so as to accommodate vessels of larger draught. This im¬ provement, the extent of which has not yet been revealed, will involve doubtless some physical alterations at the basinal foreshore on the west of the Humber, so as to get a greater depth of water at the entrance from the river. I will now proceed to answer the interrogatories specifically : — Ansiver to Questio7i No. 1 : The commercial success of Hull is unquestionably due primarily to the magnificent geographical advantages which she possesses. She is also situated at a point ou the banks of the Humber which, commercially speaking, places her in a happier position than her rival ports on the Humber, namely, Grimsby and Goole. The former port, although nearer the sea, being practically at the mouth of the Humber, is more exposed, and has to contend with a vast accumulation of mud which forms a sort of bar. As to Goole, she is far up the river, the upper reaches of which arc dotted with DOCKS AND TERMINAL FACILITIES. 229 treacherous sands, which, despite the most careful navigation, cause many shipping casualties. Goole can only be reached at certain stages of the tide by moderately sized vessels, and at all times the most careful navigation is necessary for the safety of the ships. There are sands in the river facing Hull, but they are neither so numerous nor so dangerous, and the fairway is a broad and a good one. For trade with the near continental ports and the whole of northern Europe, Hull is more favorably situated than any other north-eastern port of England. These reasons, and probably these reasons mainly, up to the time of the destruction of the North¬ eastern Railway and the dock company monopolies, at the period stated above, contributed to the general and progressive prosperity of the port. Since the opening of the Hull & Barnsley Railway and the Alexandra dock there has been competition, and ship owners and the trading community alike have benefited. Aninver to Question Xo. 2; What is known as tlie harbor at Hull is the river Hull, which is a tidal stream running from the Humber northward for some distance, and narrowing as it reaches the agricultural district, which it drains. At high tide it will float vessels of considerable burden all the dis¬ tance to which the riparian mills and warehouses extend, but as a matter of fact it is used almost entirely by keels, lighters and barges. As I have stated in my introductory observations, the harbor was the sole place for shipping before the incorporation of the Hull Dock Company, now more than a century ago. The Hull River is not in tlie ordinary sense of the word a harbor, it is simply a river which empties into the Humber ; and more than once a suggestion has been made that it should be utilized as a dock by diverting its course. The Humber really forms the harbor for Hull. The river is very broad opposite Hull all along the frontage of the two systems of docks, east and west, and the anchorage is good and safe in all weather. Ansiecr to Question No. 4: This wouid appear to suggest the question whether public or private ownership of the dock estate is the more beneficial to trade. On this point there is considerable divergence of opinion in Hull. In the years 1864 and 1865 a very determined effort was made by some of the leading representative men to establish a public dock trust. This, be it remembered, was at the time when there was a monopoly of dock 230 DOCKS AND TERMINAL FACILITIES. and railway facilities. The proposal was at first taken up with much spirit by the townspeople and by the municipal corporation. The suggestion was that the trust should be composed of the corporation, certain elder brethren of the Trinity House aud a certain proportion of the members of the different trading organizations. The oppo¬ nents of the scheme, however, succeeded in defeating it by insisting that any deficit on the working of the dock estate, which, they argued, would be almost inevitable, would have to be met by a borough rate. Again, when the transfer of the old docks to the North-eastern Railway was proposed, in 1893, there was an agitation for the munic¬ ipalization of the undertaking. The representatives of labor were particularly anxious that the North-eastern Railway Company should not possess the docks ; but practically all the ship owners and mer¬ chants aud tradesmen objected strongly to the municipalization pro¬ posal. They argued that docks as docks could no longer be made to pay ; that they could only be made remunerative in the hands of railway companies, who would make their profit on the lines and docks combined. They point to the fact that the docks at Goole were owned by the Aire & Calder Navigation Company, and fostered by the Lancashire & Yorkshire Railway Company ; whilst the docks at Grimsby were created aud owned by the Manchester, Sheffleld & Lincolnshire Railway Company, who provided dock facilities both for the general commerce of the port and for the fishing interest. The supporters of the municipalization of the docks were, under these circumstances, unsuccessful. It maybe safely asserted that the majority of the different interests of the town are opposed to the pub¬ lic ownership of the docks, aud from this fact it may be inferred that opinion in the main is favorable to the existing proprietorship. Ansiver to Question No. 5: In the case of the undertaking of the dock company recently transferred to the North-eastern Railway Company, the ownership and control are wholly in the hands of the North-eastern. There are, however, on the board what are 'called two local directors, but they are appointed by the company in the usual way, and they can do nothing for Hull unless their views meet with tlie support of their colleagues. "With regard to tlie Hull & Barnsley Railway and dock (the Alexandra), which is the largest and newest, as stated before, the case is somewhat different. When the promoters of the bill authorizing the construction of the new line aud dock went to Parliament for statutory powers, they were supported by the municipal corporation, which took shares to DOCKS AXD TERMINAL FACILITIES. 231 the extent of one hundred thousand pounds, and assisted them with foreshore land, stipulating only for a rent charge, and in other ways expressing in a substantial way their sympathy with and support of the movement. The corporation also protected the interests of the port, and secured tlie independence of the dock by the insertion of a clause giving them the right of pre-emption. They have also a representative on the board, and to this extent, and a by no means insignificant extent, as has been proved on many occasions when movements hostile to tlie commercial interests of Hull have been initiated by outside shareholders, the Hull & Barnsley Railway Com¬ pany's dock and line may be said to be quasi-public. It may be added that tliere has never been any dividend earned, but the rate payers never complain of the help which has been rendered to the new company. Ansirer to Question jVo. (i : The whole of the docks and wliarves — save those wharves which are not dock property — and tlie quays are regulated bj' tlie dock companies, who have by-laws for the purpose. The Xorth-eastern have quite recently enclosed the Albert dock and the William Wright dock ; but all the rest of the docks are open fo the public, and have been since their construction. The enclosure has been justified by the extensive prevalence of pilfering on the dock quays and under the sheds. The North-eastern have suggested the enclosing of the town or old docks, but as yet no formal proposal has been made in this direction. A former attempt to enclose the old docks was resisted by the public. Ansioer to Question Xo. 7 : Neither the State nor the municipal corporation has interfered with the ownership and control of the docks, save when the corpo¬ ration has appeared in Parliament as an opponent to a bill, or, as in the case of the Hull & Barnsley Railway, when it supported a measure. This interference cannot, however, be said to have had much effect upon the policy or conduct of the proprietors, with the exception of the Hull & Barnsley, where undoubtedly, as far as trade and commerce are concerned, the town has benefited. At no time lias there been any extraordinary legislative interference, and the cor¬ poration as such has no means of interfering ; it can only suggest and recommend and defend the public rights and privileges against encroachments. 232 DOCKS AND TERMINAL FACILITIES. A/isirpr to Question No. 8 : I his question is practically covered by the answer to the foui'th interrogatory. Hull has had no experience of the commercial bene¬ fits or otherwise, for the reasons already particularized. All that can be said on the matter is that opinion is not unanimous either for or against the principles of establishing a public trust or board. The balance of expert opinions is undeniably against the public ownership of the docks at Hull. Aiisirvr to Question No. 9: There is no public ownership, in the sense here indicated, as already answered, the public ownership, as represented by the Hull corporation's investment and measure of control, being compara¬ tively limited. Ansu:er to Question No. 10: The revenues receivable are about equally balanced between the dues paid by the vessels themselves and those paid by the cargoes which they bring. The cargoes always pay the cost of landing. The responsibility ceases when the cargo is put upon the ship's rail. Ansirer to Question No. 11 : Tliere are goods lines belonging to the North-eastern and the Hull & Ilarnsley direct to the docks, so that vessels discharging or load¬ ing are placed in immediate connection with the main lines. In the old town docks no locomotives run on the quays or property used and owned by the North-eastern Company, but there is a system of lines over which trucks are drawn by horses and taken to the branch or main lines. The facilities in this respect are quite adequate to the needs of the port. Answer to Question Xo. 12: There is no railroad, as distinct from tiie lines of the North-east¬ ern and Hull & Barnsley,—the only two great companies, really serving Hull. Other companies have running powers into Hull, but. they run on independent or separate lines. The docks are connected with main lines in the manner Just described. DOCKS AND TERMINAL FACILITIES. 233 Ansivei" to Question Ab. 13 : Hull being essentially a port of transit, it is impossible to ex¬ aggerate the importance of its railwa}' facilities in considering the contributing causes of its commercial prosperity. When the North¬ eastern enjoyed a monopoly of the traffic to and from Hull, it was the universal complaint that the rates of carriage were too high, and that, owning the Tyne and Hartlepool docks, these places were favored, to the detriment of Hull. The Hull & llarnsley line did and still does much to encourage the trade of the port, particularly in respect of coal. \'essels used to go to the northern ports to coal, but now they have facilities at Hull which were formerly denied them. Hence the chief Humber 1)ort is more and more reaping the advantages of her geographical position. There are still complaints that the North-eastern rates are excessive, especially having regard to the competition of the Manchester ship canal. The answer of the North-eastern to these complaints is that they are prevented from doing more for Hull by reason of their arrangements with other companies who exchange traffic with them. Anstver to Question Xo 14: In Hull there is no system of private lighter ownership, with the free use of all the docks. No charge is made for wharfage upon goods that are put overside into the lighters. This is kept as a check upon goods which arc landed and go by rail, as the water traffic is found to be a very successful safeguard against anj' innovation or encroachment on the part of the railway companies in the direction of an increase of their quay charges. Answei' to Question No. 1.1; The terminal and distributing facilities are some of the best in England, Hull having a free waterw.ay in the shape of the river Hiimber, by which all descriptions of goods can be carried into the very heart of the country over the different waterways and canals. As the goods which are passed overside in the Hull docks into light¬ ers and transported into the interior pay no wharfage or dock dues whatever, it will be seen at once that this fact is a very active agent in competing with and tending to check the advance of railway rates. 234 DOCKS AND TERMINAL FACILITIES. Answer to Question No. 16 : Oil this subject I have no knowledge "which would justify me in submitting it as authoritative. This question will no doubt be answered fully by consuls at ports where public funds have been so used. Answer to Question No. IT : The two leading industries of Hull are the seed-crushing and oil trade and the timber trade, both of which are extensive. There are not many manufacturing industries, and for years the seed and tim¬ ber trades have been looked upon as the staple trades of the town. There is a very important industry, namel}', the deep-sea trawl fishing, with which it is calculated some twenty thousand persons are directly or indirectly concerned. This trade has, as stated already, a dock with an extension in progress, especially appropriated to its business, b}' the North-eastern Railway Company. The fishing interest repre¬ sents something like one million sterling of invested capital. Ansicer to Question No. 18 : The purchase of the docks (excluding the Alexandra, which, as already explained, belongs to the Hull & Barnsley Railway and Dock Corporation) has not up to the present period been so beneficial as had been anticipated to the traders of Hull. There ai'o complaints that the town made a mistake in acquiescing in the purchase of the docks b}' the railway company, the allegation being that the directors have failed to develop facilities or to give reduced rates in order- to increase traffic. The company promised to do this when they proposed to acquire the dock estate. No concessions are made to ship owners or others, either in respect of volume of traffic or ship¬ ping dues. There is, in fact, no differential rate, nor is aiij' rebate allowed. Under these circumstances, it is argued that there has been no material advantage whatever to the port from the amalgamation of the docks with the North-eastern Railway. It is further contended that, the North-eastern owning competing docks elsewhere, Hull is virtually locked up in the hands of a company which administers the property from a distance ; that there ought to be local control, by men who are in thorough touch with the port, and know its require¬ ments pcrfcctlv. These remarks do not apply to the Hull & Barnsley DOCKS AND TERMINAL FACILITIES. 235 Railway and Dock Company, inasmuch as to a great extent it is lo¬ cally administered, and the corporation of Hull are large shareholders therein. U. S. Consulate, Hull, Nov. Ifi, 1895. Supplementary Report. Since forwarding my report of the Ißth instant, on the docks of Hull, the town has been very much excited by a formal notice on the part of the North-eastern Railway Company of their intention to apply to Parliament for powers enabling them to amalgamate the Hull & Barnsley Railway and dock with their own system. The new scheme involves the abandonment of the proposal, to 5vhich I referred in my report, for deepening tlie main foreshore docks of the North-eastern Company and the expected improvement of their estate in that direction. As I pointed out, the formation of the Hull & Barnsley Company was intended to destroy, as in fact it did, the monopoly of the Hull Dock Company and the North-eastern. The acquisition of the Hull & Barnsley undertaking would restore the status quo ante, or, in other words, the monopoly of the docks and railway communication, with this difference, — that the North-eastern would take the place of the Hull Dock Company, absorbed by them in 1893. The Hull municipal corporation has, to a certain extent, the power of vetoing the proposal of the North-eastern Railway Company ; that is to say, they have a statutory right to assent or otherwise to any scheme for transferring the Hull & Barnsley line or dock to the North-eastern or any other company. But the Railway Commis¬ sioners, or the Board of Trade in London, may, if appealed to, decide whether the consent of the corporation is, or is not, " arbitrarily or unreasonably withheld." As far as the board of the Hull & Barnsley Company ai-e concerned, it is certain that the majority approve of the proposed transfer, seeing tiiat since 1880, when the company was incorporated by act of Parliament, no dividend has been earned. There can be no doubt that the scheme is unpopular in Hull, in¬ asmuch as nothing is more dreaded than a restoration of dock and railway monopoly. Full details are yet wanting, and there seems to be very little obstacle in the way of the Nortii-eastern becoming the purchasers of the Hull & Barnsley Railway and dock, save the opposition of the municipal corporation,—an opposition which is a foregone conclusion. The great majority of the shareholders would doubtless welcome the amalgamation, for the reason stated. U. S. Consulate, Hull, Nov. 23, 1895. 236 DOCKS AND TEE:\IINAL FACILITIES. The following communication waa alao received : — Ili LL, Dec. 127, 1895. Dear Sir: — I have your esteemed letter of the 29th iilt., and have taken very careful note of the contents. Owing to absence from Hull, your communication has not been so promptly replied to as I could have wished, and you must not construe this into anj' desire not to give yon whatever information I can in as condensed and coucisive form as possible. With regard to the North-eastern Railway Company, I have sent you a book which is published, showing the position of affairs up to a certain date, and the way they used Hull until their monopoly was broken through in the year 1880, by an act of Parliament being got to construct the Hull & Barnsley Railway, with the Alexandra dock at the end of it. It has been the-North-eastern Railway Company's practice, even up to the present time, to carry goods from Hartlepool and Tyne docks in the north of England (where they own the docks) to Shef¬ field and Birmingham and other important centres in England at the same rate as from Hull, although the distance in some cases is sixty to seventy miles shorter from Hull, and thereby injuring the develop¬ ment of Hull ; and there can be no question about it, had Hull not been tied down to one railway companjq Hull would have been twice the size it is to-day as an importing centre. Immediately after the Alexandra dock and railway were opened in 1885, the old docks, which were in the possession of a separate com¬ pany, and which were controlled indirectly by the North-eastern Railway Company, although they had no interest in its losses and gains, — this old dock company, owning the old docks, was pushed forward by the railway company to fight the Hull & Barnsley Com¬ pany and the Alexandra dock on dock rates, and a ruinous war on rates took place between the Alexandra Dock Company and the Hull old dock company, which ruined the latter, and their estate had then to be sold ; and there was only one buyer, and that buyer was the North-eastern Railway Company, whose lines interlocked the whole of the docks ; and the one hundred pound shares of the old dock company, which had been paying good dividends for years, were sold, giving the shareholders a little over forty pounds for their one hundred pound shares, — an enormous sacrifice. The North-eastern Railway Company went to Parliament to get power to buy the old docks, and promised the traders of Hull all sorts of things with regard to improvements, and based upon this promise the traders supported them. They have had the docks now nearly DOCKS AND TEKMINAL FACILITIES. 237 two years and a half, and practically nothing has been done to the Hull docks, and now they are going to Parliament to try and buy the Hull & Barnsley Railway and Dock Company at a wreck price, after the maiming they gave it in the opposition which they put forward through the old dock estate, and so once more have the monopoly at Hull. The Chamber of Commerce and corporation, and, in fact, the whole town, are against it, aud the scheme ought to be strangled in its infancy, as it is very dangerous for a railway company to own the direct outlets of the country; as, if the North-eastern Railway get hold of Hull again, they would practically own every dock and harbor on the east coast of England, either directly or indirectly, over a distance of one hundred and sixty-five miles on the sea border of this country, and every trader or merchant would be in their hands as to whether he would be allowed to live in this country or not, which is a greater power than is wielded by Parliament itself. There are no printed copies of the records ; they are stowed away in the archives of the corporation and the lawyers here who have the business in hand ; and one is in possession of myself, which I cannot very well part with, as there are many volumes, and they cannot be copied, and would cost a great deal to have them reprinted. In my opinion, the monopoly of the North-eaStern Railway Com¬ pany in Hull, prior to the opening of the Hull & Barnsley Railway Company, had a most cramping and detrimental effect on the com¬ merce of the port. For your guidance I send you a copy of a newspaper and two or three of our Chamber of Commerce summaries, which will give you an idea of the business moving through this port ; and trust what information I have given you may be of some service to you, and at all times at your command here, I am, dear sir, yours truly, W. A. Massey. P. S. I may explain that the old Hull & Selby line was the origi¬ nal road into Hull on the present North-eastern route, and which they bought up to make their monopoly. 238 DOCKS AKD TEKMIKAL FACILITIES. LEITH (Scotland"!. [The report of UoiiriiT ,T. M.vcBiude, U. S. Consular Agent.] The harboi-of Leith, the sea-port of Edinburgh, consisted at first of the channel made by the water of Leith, as it fiowed across the beach, called Leith Sands. The channel was tidal, and, though sufficiently deep at high water, depended entirely at ebb tide upon the small amount of fresh water that ran down it into the Firth of Forth. Early in the seventeenth century a wooden pier resting on strong pillars was erected, and its character for stability is well illustrated by its lasting for over two hundred years. Between 1720 and 1730 there were constructed a stone pier, which was joined to the wooden pier so as to extend it by 300 feet, and a small dock on the west side of the mouth of the water of Leith. In 1777 a short pier, afterwards known as the Custom House quay, was built. The eastern wet dock was begun in the year 1800 and finished in 1806. The construction of the western wet dock was begun in 1810 and finished in 1817. In addition to the two wet docks, which together cost $847,000, there were also constructed during the same time three graving docks, at a cost of over $87,000, and drawbridges, at a cost of $55,000; there was also paid for ground in connection with these improvements the sum of over $387,000 ; so that the total cost of the construction and improvements made from the j'ear 1800 to 1817 amounted to nearly $1,400,000. The measurements of the docks referred to are as fol¬ lows : each of the wet docks is 750 feet long by 300 feet broad ; each of the graving docks is 136 feet long liy 45 feet wide at the bottom, and 150 feet long by 70 feet wide at the top. The entrances are 36 feet wide. A strong retaining wall, in the building of which over 250,000 cubic feet of ashlar was employed, protects the docks from the sea. The wet docks are still known by the name of the east and west old docks, although the western basin is also sometimes called the Queen's dock. In 1826 further improvements were begun, resulting in the exten¬ sion of the eastern pier about 1,500 feet, which gave it a total length of 2,550 feet; and also in making a western pier and break¬ water, and in using part of the Queen's dock as a naval store yard. These improvements were completed at a cost of $1,161,000, bor¬ rowed from the government on the security of the dock dues. The Victoria dock was commenced in 1847 and completed and opened in 1851. This dock lies immediately to the nortli of the old docks, and has ail area of nearly 5 acres. It is 700 feet long by 300 feet in DOCKS AND TERMINAL FACILITIES. 239 breadth, and has a wharfage 1,900 feet in length and 100 feet in breadth. It has an entrance which is 60 feet in breadth. The sum spent in constructing this dock, extending the piers and in deepen¬ ing the channel amounted in all to about $650,000. In 1858 the Prince of Wales graying dock was opened ; it is 370 feet long by 60 feet broad at its entrance. I have been unable to ascertain the cost. In 1869 the Albert dock was opened. It lies north-easterly from the Victoria dock. Its area is nearly 11 acres. It is approached from the west through an outer basin of more than 2 acres in extent, and by means of a lock 350 feet long and 60 feet broad. Hydraulic cranes are fitted on its quays, and, like all the other docks, it is well supplied with water hydrants and is lighted by gas. The total cost of the dock, including $175,000 for cranes, sheds, etc., was about $1,100,000. The construction of the Edinburgh dock was commenced in 1874 and the dock was finally opened by the Duke of Edinburgh in the year 1881. It lies immediately east of the Albert dock, to which it is joined by a channel 270 feet in length and 65 feet in breadth. A swiug bridge worked by hydraulic power, costing $75,000, has been made over this channel, allowing easy communication with the north side of the dock. The dock covers an area of nearly 17 acres in extent, and cost, with the improvements in connection with it, the sum of more than $2,000,000. It is about 1,500 feet long by 650 feet in width, with a pier or jetty 1,000 feet in length, extending through the centre from east to west, giving in all some 6,000 feet of quayage. The trade of this port having steadily improved since the opening of the Edinburgh dock, the Harbor and Dock Commissioners ob¬ tained powers by act of Parliament to construct further docks and other works. Under these powers an enclosure of about 85 acres of ground by a reclamation wall 4,400 feet long is in process of con¬ struction, and will be completed in about a year. When this is accomplished a dock 1,100 feet long and 500 feet wide will be com¬ menced on the enclosed ground. The dock will be entered from the harbor by a lock 350 feet long and 70 feet wide, with a depth of water on the sill of 31 feet at spring tide and 26 feet at neap tide. There will be a passage 60 feet wide, with lock gates between the new dock and the north-west corner of the Albert dock, by which it is expected the Albert and Edinburgh docks will obtain some of the advantages of the increased depth of the new dock. The present quays are about 200 feet wide, but experience has shown that, with the large steamers arriving at this port, this width is insufficient, so the quays on the new dock will be 400 feet in width. 240 DOCKS AND TERMINAL FACILITIES. I am informed by the secretary of the Leith Harbor and Dock Commission that the new dock will be completed and ready for use in from four to five years. The ownership of the docks, wharves and quays has always been vested in the public. Previous to 1838 the right of property over the harbor of Leith belonged to the city of Edinburgh. By an act of Parliament, passed in the year 1838, the petty customs of the town were transferred from the city of Edinburgh to the town council of the city of Leith. The entire management and control of the docks is now vested in a commission of fifteen members. Three of these are elected by the town council of the city of Edinburgh, three by the town coun¬ cil of the city of Leith, one by the Edinburgh Chamber of Commerce, one by the Leith Chamber of Commerce, one by the Edinburgh Mer¬ chant Company, two by the ship owners and four by the rate payers, — those who pay $17.50 and upwards of dock rates. The members of the commission are men of the highest standing in the community, and they receive no compensation for their services. The success of the harbor is due to the fact that the ownership is public, and also to careful and prudent management. Money is easily borrowed (when authorized by Parliament) at a very low rate of interest on the security of the dock dues. The fact of the port being at the capital of Scotland and being a transit port for other parts of Great Britain is also to be considered. The principal part of the revenue comes from cargoes. The total amount of revenue received for the fiscal year ending May 15, 1894, was somewhat more than $450,000. Of this sum, about $140,000 was from ton¬ nage rates on vessels. The total amount received from cargoes, im¬ ports and exports was about $220,000. The graving docks, crane rates, shed rates and ballast produced a revenue of over $55,000, and the railway companies paid for the use of tracks on the quays the sum of over $12,000. There was also received from rents and other sources about $48,000. Two railway companies, the North British and Caledonian, have their tracks over all the wharves and quays, and vessels can dis¬ charge and receive freight direct from the trains. The commis¬ sioners attribute much of the success of the port to the railroad connections. There is no system of lighterage. If necessary, shippers find their own lighters. The. chief staples of the traffic in imports are grain, fiour timber, sugar, etc. ; in exports, coal, pig iron, beer, etc. U. S. CoNSVLATE, Leith, Aug. 16, 1895. DOCKS AND TEEMINAL FACILITIES. 241 LIVERPOOL (England). [From the report of James E. Neal, U. S. Consul.] Appended to the following report of the consul at Liverpool will be found a statement of facts and information taken from reports referred to : — Ansioer to Question No. 1 : First-class dock, shed and warehouse accommodation. Superior facilities for the rapid discharge and loading of ships and manip¬ ulation of cargoes on the quays. Reasonable dues on ships and goods, etc. Answer to Question No. 2 : See enclosed pamphlet No. 1, issued on the occasion of the open¬ ing of the new Riverside Station, and enclosed tabular statement No. 2, showing the water area, quay space, etc., of each of the Liverpool and Birkenhead docks. Ansioer to Questions Nos. 3 and 4 : It is quite safe to say that the commercial progress of the port has been remarkably successful during the time it has been controlled by he present body. Answer to Question No. 3 : See enclosed memorandum No. 3 as to the constitution of the Board, etc. Answer to Question No. 6 : See answer to previous question, and also enclosed copy of the Board's general by-laws and regulations, and of the by-laws and regulations of the docks, quays, etc. (Nos. 4 and 5). Answer to Question No. 7 : Some of the docks controlled by the Mersey Board are situated at Birkenhead, and were originally owned by a body called the Birken¬ head Dock Company. In about the year 1855 or 1856 this body was unable to profitably work the docks in question, and the concern 242 DOCKS AND TERMINAL FACILITIES. was then sold to the corporation of Liverpool. It was subsequently transferred, under the provisions of the Älersey docks and harbor act, 1857, to the present Mersey Docks and Harbor Board. Tliis is the only instance of private ownership in connection with the docks of this Board, and the fact of this transference for the reasons stated is a proof that private ownership, in this particular iustauce at all events, was not a success. Ansicer to Question Xo. fl ; The connnercial advantages of public control should be that the docks and harbor should be worked entirely for the benefit of the traders and those using and frequenting the port, and that all surplus revenue after payment of interest on borrowed capital should either go towards reducing the debt or capital of the company or should be expended in extensions of the docks system, or in providing new and improving the existing facilities at the port. Great care should, however, be taken to see that the members elected to serve on such a trust are altogether free from political bias, and that politics in any form should have no participation in the election of the mem¬ bers, and should be rigidly excluded from all questions affecting the trust. In the case of trusts such as that of the Mersey Docks and Harbor Board, the functions of the Board are administered without the members of the Board receiving any remuneration whatever, or enjoying any privileges for the time and attention bestowed by them upon the work. .\s regards privately owned docks, the first consideration might be not so inticli the maintenance of tlie undertaking in a proper working eonditioii as the provision of a dividend for the shareholders. The uoverniiig body would also without doubt reipiire remuneration or jiri\'ileges of some sort. ^l)isiri'i' to (Question Xo. 0; See enclosed copies of tlie Mersey docks and harbor act, 1857, and the Mersey dock acts consolidation act, 1858 (No. 7), which give, the iiiforination required as regards the Board. Aíi.sícfir to Question Xo. 10 : See page 25 of the enclosed copy of the Board's accounts for the year ending July 1, 181)5 (No. 8). Goods landed at the Board's open docks are liable to the cliarges shown in the enclosed copy of llie last published schedule of master porter's rates, etc. (enclosure No. t)). DOCKS AXD TEEMIXAL FAC ILITIES. 243 Goods lauded at the Board's enclosed docks (warehouse) are liable to the rates and charges shown in the accompanying schedule of ware¬ house rates, charges and rents (enclosure No. 10). Goods imported into and exported from this port are liable to the dock rates and town dues shown in the last printed tables of rates and dues on ships and goods sent herewith (No. 11). Landing charges, ^'iz., the expense of discharging vessels, is usually borne by the ship owners. Ansicer to nestion Xo. 11 : The principal railway companies, such as the London & North¬ western, the Great Western, the Lancashire & Yorkshire, and the Manchester, Sheffield & Lincolnshire, having termini in this city, have connections with the docks at Liverpool or Birkenhead at various points along the dock estate, and goods are discharged from and loaded into wagons to and from shipping in the docks adjacent thereto. Answer to Question Xo. 12; No. The railways are controlled by the companies named in answer to Question No. 11. Answer to Question No. 13: It is very difficult to answer this question, as so many factors enter into this case. Ansicer to Question No. 14 : Goods are lightered from and to this port to and from the upper reaches of tlie river Mersey and the various systems of canals, in¬ cluding the IMauchester ship canal, which exist in the north of Eng¬ land. Lighterage of goods is also carried on to some extent across the river, to and from the docks at Liverpool and Birkenhe.ad. The charges, over which the Dock Board have no jurisdiction, vary widely, according to the service performed. Ansv;er to Question No. 15 : The distributing facilities possessed by this port, both sea and land, are unique, occupying, as it does, a natural central position in an ex¬ tensive district teeming with an industrial population. The systems of warehouses owned by the Board for the storage of all kinds of 244 DOCKS AND TEEMINAL FACILITIES. merchandise, and the specially constructed warehouses at the Waterloo dock and Birkenhead, fitted with appliances for the raising, storing, ventilating, etc., of grain, together with privately owned warehouses in the city, tend to make the terminal facilities of Liverpool second to none. Answer to Question No. 16: No; I have not such knowledge. Ansiver to Question No. 17 : Grain and breadstuffs, cotton, sugar, fruit, provisions, timber, cattle, etc. I deem it but right to say, before closing this report, that the fore¬ going answers to the questions submitted were made by the Mersey Docks and Harbor Board, and the language is theirs, and I repro¬ duce it here as probably the best answers that can be obtained to the questions. I also desire to herein express my appreciation of the kindness of the Dock Board in furnishing these answers and the memoranda accompanying the report. U. S. Consulate, Liverpool, Sept. 12, 1895. Liverpool Docks Board Formation. Prior to 1857 the docks and the works in connection therewith were under the control of the dock committee, whose proceedings, however, were subject to the approval of the Liverpool town council in meeting assembled, as trustees of the Liverpool docks ; but by the Mersey docks and harbor act, 1857. the control and management of the docks at Liverpool and Birkenhead became vested in the present Board. The twenty-fourth section of the Mersey docks acts consolidation act, 1858, provides that the Board shall consist of twenty-eight members, of whom tweuty-fonr are to be elected by the dock rate payers. By section eleven of the Mersey docks and harbor act, 1857, a person to be qualified to be an elective member of the Board must reside within the borough or tlie customs port of Liverpool, or within ten miles of the outward boundary of the said borough or port ; and, according to the twenty-sixth section of the consolidation act, 1858, he must pay to the Board, within the year immediately preceding his DOCKS AND TERMINAL FACILITIES. 245 election, rates in respect of ships or goods to an amount of not less than twenty-five pounds. The other four members are appointed by the Conservancy Commissioners of the river Mersey, viz., the first lord of the Admiralty, the president of the Board of Trade and the chancellor of the Duchy of Lancaster. The members receive no remuneration. Each member is elected for a term of four years, but at the expiration of that period is eligible for re-election. The qualification of an elector is the payment of rates to the Board in respect of ships or goods to an amount of not less than ten pounds, in the year preceding the 1st of August. He must also be a British subject, or a foreigner resident of the United Kingdom, and must be on the register of dock electors. The business of the Board is conducted by committees, who meet weekly and whose proceedings are submitted weekly to the Board for confirmation. Information in Connection with the Port of Liverpool. The Mersey is tidal from its mouth at Liverpool to the town of Warrington, some twenty-nine miles up stream. At Liverpool, and for some distance above it, the estuary is wide and deep, affording a navigable channel and an anchorage ground where numerous vessels of the very largest class can safely lie at all times. The Mersey, abreast of Liverpool, is about 1,200 yards wide at its narrovvest part, and at the lowest low water there is a depth of water of from 50 to 70 feet. From Liverpool out to the open sea in Liverpool Bay there are broad and deep channels, well buoyed and lighted, affording safe accommodation at all times for vessels between Liverpool and the sea. Until a year or two ago the bar of the main ship channel formed an obstacle to the navigation of large vessels at certain states of the tide. In the year 1890 an experiment in dredging was determined on. and two steam hopper barges fitted with centrifugal pumps for raising sand and water were set to work on the bar. The results of the experiment were so far encouraging that the Board decided on proceeding with the work on a more extended scale. Their engineer recommended the construction of a sand dredger of very great ca¬ pacity, and eventually a hopper barge was built, 320 feet long by 47 feet beam, capable of containing 3,000 tons of sand in her hop¬ pers, and provided with pumps which enabled her to raise that quantity from the bed of the river in forty-five minutes. The effect of such a dredger was soon felt, and the channel across the bar has, by the work of the dredger and the two smaller vessels. 246 DOCKS AND TERMINAL FACILITIES. been deepened for a very great width, so that vessels can now enter practically at all states of the tide, the channel being 1,450 feet wide, and having a depth of 24 feet at the lowest water of spring tides. Some idea of the amount of material removed from the bar may be obtained when it is remembered that the quantity, if placed square up from the ground on a ten-acre field, would rise over 420 feet into the air; or, if placed in pyramidal form on the same area, would reach three times that height, say 300 feet higher than the Eiffel tower, or two and three-fourths times the height of the great pyramid at Ghizeh. The deepening of the bar channel greatly improved matters at this end for the transatlantic passage. Detention at the bar became a thing of the past, and the liners could proceed direct to the river at Liverpool, there to land the passengers by tenders, which dis¬ embarked them without undue inconvenience at the great landing stage. The part of the great lauding stage known as the Prince's stage, constructed in 1857, has for many years been the chief point of landing and embarking transatlantic passengers, and here the custom offices and room for examination of passengers' luggage have been established. The new scheme for the accommodation of the Atlantic passengers secured the retention of the existing stage, with all its necessary offices, etc., as the landing place, and included the bringing of the railway trains close alongside, a large and commodious railway sta¬ tion being constructed for the purpose. The stage is a floating structure 2,063 feet long and of a width varying from 80 to 100 feet. The flotation is given by a large number of pontoons (160) of wrought iron, on which are laid longitudinally a number of hollow girders or kelsons, upon which again is laid tiie framework of the deck,—wrought-iron beams covered by planking of green-heart, a hard and durable West India timber. This stage, of course, rises and falls with the tide, and maintains its deck at a uniform level above the water. Connection with the shore is maintained at all states of the tide by means of bridges hinged at the shore end and also at the stage end, the gradients of which vary with the state of the tide, and are always practicable for foot passengers. The operations in connection with the berthing of the vessels and the transfer of passengers and luggage have in every case been suc¬ cessfully and expeditiously carried out, passengers having been on their way to London in less than an hour from the time of the vessel mooring alongside the stage. DOCKS AND TERMINAL FACILITIES. 247 River and sea channels : — Depth of water at bar at low water of spring tides at present (feet), ... 24 Depth of water in river opposite Idverpool at same state of tide (feet), .... 50-70 Width opposite the landing stage (yards), 1,200 Length of river frontage of the Liverpool dock estate (miles), . 1\ Area oí water space of the Liverpool and Birkenhead docks (acres), 546 Length of quays, Liverpool and Birkenhead docks (miles), . . 35 Great landing stage, Liverpool : — Length (feet), 2,063 Breadth (feet), 80-110 Area (square yards), 20,000 Riverside station ; — Length (feet), 790 Breadth (feet), about 85 Height from rails to apex of roof (feet), 50 Length of platforms (feet), 740 Width (feet), 20 Mersey Docks and Harbor Board, General Manager and Secretary's Office, Liverpool, Oct. 22, 1895. My Dear Sir : — Referring to your letter of the 4th instant, making certain inquiries as to the amount expended by this Board in connec¬ tion with the dock estate, I beg to reply thereto as follows : — Q. 1. How much has the Mersey Docks and Harbor Board spent, in gross, in acquiring their present projierti- ? A. 1. I am not in a position to furnish you with actual figures to show the amount which has been spent in gross in the acquisition of the Itoard's present property, but in round numbers it may be taken that it approxi¬ mates £40,000,000. Q. 2. What is the present amount of bonds outstanding ? A. 2. The amount of bonds and annuiti(!s at present outstanding is £17,782,356 5.5. (see page 2 of the Board's accounts for the year ending the tst of July last, sent per book post), Q. 3. Has the reduction been made out of the surplus earnings of the Board, after deducting running expenses ? A. 3. Very large sums of money have been expended on the dock estate, in excess of the amount of the bond debt, out of the revenue of the estate. I am yours very faithfully. Miles Kirk Burton. The Hon. Woodward Emery, Chairman, State Board on Bocka and Termimd Faeililica, Boston, U. S. A. 248 DOCKS AND TERMINAL FACILITIES. MARSEILLES (Prance). [The report of Charles P. Pressly, U. S. Vice-Consul,] Ayisicer to Question No. i ; The geographical positiou of Marseilles is one of the most impor¬ tant elements in its success as a port. It is the natural gateway between western Europe and the countries of the Levant, and a large percentage of the trade of China, Japan, India, Turkey and Africa is discharged upon its wharves. It is the chief objective point, and by the force of natural circumstances the currents of trade from the far east find an outlet through this port. From the time of the Phœnecians, Marseilles has been the commercial centre in which was focalized a large shaie of the Mediterranean trade. Following its geographical position and advantages, lines of ships were established and operated between this port and all the important commercial points upon every sea. Hence, by reason of superior connections, the volume of trade has gradually increased since 1819, until the total port receipts in 1889 amounted to 4,657,906 tons, making Mar¬ seilles the eighth sea-port of the world. The entrance to the harbor is easy and feasible at all hours and times, without reference to tides. (There is no tide in the Mediter¬ ranean.) No bars or other such obstructions to free navigation exist, but the harbor entrances enjoy a water depth of 30 to 45 feet ; while in the docks themselves and to the very side of the quays vessels drawing 30 feet of water may be moored. Deep water, there¬ fore, is one of the pre-eminent facts, to which is due the superior advantages of this port. As an accessory circumstance, there is a breakwater constructed of stone and protected towards the sea by immense concrete blocks. This breakwater is 3,595 meters long, and is regarded as one of the most substantial and magnificent in the world. Thus the free circulation of deep water is supplemented and protected by a solid wall. As an area for the mauœuvring of vessels and handling of mer¬ chandise, there are more than 340 acres of water surface and 49,475 feet of quays, inore than one-half of which is practically free. Five dry docks, covering about 20 acres, afford ample conveniences and facilities for repairs. The equipment of the private docks is quite complete ; there are extensive warehouses for storage, cranes, light¬ ers and floating elevators for the handling of merchandise, with special facilities for loading and discharging wheat. We regret the lack of special knowledge and expert training which would enable us to give a minute description of harbor facilities. DOCKS AND TERMINAL FACILITIES. 249 Answer to Question Xo. 2 : Marseilles is built on a line of hills, which describe a semi-circle as they slope to the port. Wheu the ne\Y docks were constructed it was necessary to fill in a large area, so abrupt was the passage from the shore line to deep water. On the north-west these hills from a natural protection to shipping against the mistral, —the prevailing and most severe wind. Then, as a counterpart to these physical features, the long and massive breakwater (over two miles in length) has been constructed to the south-east and parallel to the shore. Thus the harbor is protected from the sea by the breakwater and from the prevailing winds by the line of hills. The piers end a certain distance from the breakwater, so as to preserve for the entire length of the port a wide channel for the free ingress and egress of shipping. Answer to Questions Xos. 3, 4, ô, 8 and 9 : From 1815 to 1890 the outla3', public and private, for the estab¬ lishment of this port has been, in round numbers : by the State and the Chamber of Commerce of Marseilles, $15,800,000; by the pri¬ vate company of the docks and entrepots^ $.3,180,000. For the equipment of the port during the same period : by the Marseilles Chamber of Commerce, $1,200,000; by the private company of the docks and entrepots, $3,600,000,—making a total in seveutj'-five years of $23,780,000, of which $6,780,000 were expended by pri¬ vate enterprise and $17,000,000 by the public authorities. Since 1856 the private company has constructed and now owns and oper¬ ates the three large docks, known as the Bassin de Joliette, Bassin Lazaret et Arene and the Bassin de la Gare ilaritime. These three docks cover about 145 acres of water surface, and arc surrounded by 26,360 feet of quays, with numerous large stone warehouses. The public docks embrace the l^ieux Port, the Bassin National and the Bassm de Raduah, with 195 acres of water surface and 23,115 feet of wharves, with sheds for temporary storage. The best equipment is owned by the private coinpanj', while the most extensive docks are the property of the public. This dual ownership and control has doubtless operated beneficially upon the character of the service em¬ ployed and upon the interests involved. Men of S[)ecial experience and information are selected for the responsible positions, and pro¬ motions, as a rule, are in both cases m.ade from the ranks, thus securing careful, industrious and reliable services. As an invest¬ ment, the shares of the private company have proven fairly remu- 250 DOCKS AND TERMINAL FACILITIES. nerative. The stock is now quoted at $85, and the dividends declared have varied from 4 to 5J per cent. The present market price, how¬ ever, is below the normal real value, owing to short wheat receipts this year and other adverse circumstances existing for the moment. The competition between the public and private companies has been an advantage to the commerce of the port. The company of the docks and entrepots has been held in check as to charges, and has been stimulated to meet the demands of trade. Improvements in every department have been made from time to time and facilities have been extended and increased. The public wharves have practi¬ cally no warehouses, only sheds for the temporary storage of goods. Hence the private company of the docks and entrepots^ by reason of more convenient location and of superior facilities, has retained a large share of the port business, and during the winter season its wharves are crowded to their utmost cajiacity. There is no partici¬ pation or financial connection between the two companies. The pub¬ lic docks were undertaken, completed and are now controlled by the Marseilles Chamber of Commerce, and the nominal tax of one and a fifth cents per regisrered ton upon each vessel entering the port is imposed for the purpose of returning the public loans expended upon harbor improvements. As to the relative advantages of private and public ownership, we cannot better answer the question than by quoting the words of Mr. Ad. Guerard, chief engineer of the port of Marseilles, in a paper- read before the International Congress of Maritime Works at London in 1893. He uses the following language : — The history of the port of Marseilles shows how onerous private owner¬ ship may prove for the interests of commerce, and how hampering to the organization of good management; in short, liow much it may injure the prosperity of a port. Hut the eijuipment of a jrrivate port is incomparably more easy than that of one open to public use. In the case of private ownership, the equipment may be absolutely complete and the most perfect ; in the other case, of public ownership, on the contrary, the equipment is always limited to that which is most generally employed. In a private company the organiza¬ tion of the equipment is only one of the elements of the general organi¬ zation of an enterprise, consisting of many and varied operations ; the expense of material 01113- represents generally a small part of the operating expenses. tVith a tratlic even moderate, an enterprise of this character is susceptible of furnishing results industrially satisfactory. If, on the other hand, the equijnnent is only established with the view of being let to the public, it requires generally a traffic very considerable to render the oper¬ ation profitable. DOCKS AND TERMINAL FACILITIES. 251 Answer to Question No. 6 : The public docks are under the immediate control and regulation of the Marseilles Chamber of Commerce, with the supervision of the national government. By law the Chamber of Commerce is specially charged with the direction and management of the port. The private company of the docks and entrepots elects its board of control at a meeting of the stockholders, and this board is composed of men having the greatest financial interest in the company. In other words, is selected from among the largest shareholders. Answer to Question No. 7 : In 1872, when the business of this port was practically in the hands and under the control of tlie private company of the docks and entre¬ pots, the commerce had reached such proportions that the docks and wharves were altogether insutficient for the requirements of trade, and reclamations for delay and damage became numerous and frequent and were generally unheeded. The private company, intrenched in its monopoly, continued to impose its full tariffs and refused any enlargement of its facilities. To relieve this congested and paralyz¬ ing condition, new docks were authorized by national legislation in 1874, were begun in 1875 and completed in part in 1881. Public sentiment demanded in strong and vigorous tones the construction of the new docks, and that they should be owned and controlled by the public authorities, as a security and protection for all time against the monopoly and exactions of private companies. Free labor and free quays was the battle-cry of the agitation. Litigation arose ; the private company of the docks and entrepots claimed an exclusive con¬ cession from the State. The courts decided against the contention of the private company, and the new national docks were undertaken, completed and are now controlled by the Marseilles Chamber of Commerce. The competition between the public and private com¬ panies has been most beneficial. It has stimulated improvements and multiplied facilities, while the port charges have decreased more than eight per cent, in live years. Ansiver to Question No. 9 : There has been no change in the ownership of the docks, nor has there been any transfer from a private to a public company. 252 DOCKS AXD TERMINAL FACILITIES. xbisicer to Question Xo. 10 : From 1875 to 1894 the national dock charged a fee of two cents per registered ton on all vessels entering the port. Since 1894 this charge has been one and one-fifth cents per registered ton. This was a tax on the vessel. The landing charges of the private com¬ pany are twenty-eight and one-half cents per ton, which is imposed upon the cargo and is generally paid by the shipping company, though it is a matter of contract between the ship and the shipper. Hence the greater part of the dock dues is derived from the cargo. An.sirer to Questions Xos. 11 and 12 : The tracks on the wharves of the private company are owned and controlled by the company, while the tracks of the lines serving the public docks and connecting the port with main line are owned by the public, but operated bj^ the Paris, Lyons & Mediterranean Rail¬ way Company, the only railroad touching Marseilles. The total length of tracks on the quays is about twenty-seven miles, and it is about two miles from the port to the central railway depot. The freight charges are five cents a ton. Answer to Question Xo. 13 : The proportion of success attributable to railway connections is problematical, and greatly limited by the fact that only a small per¬ centage of the merchandise entered or shipped at this port passes over the connecting lines. In 1889, of the total port receipts, amount¬ ing to 4,057,906 tons, only 994,000 tons were transported over the branch railway. These figures show what an enormous proportion of the receipts are shipped out by sea or arc carted and warehoused in the city. Perhaps there is no port in the world where more dray- age is done, and the streets diverging from the docks are usually so crowded with carts and wagons that one is reminded of a past age, when animals were the sole transporting power on land. However, the conveniences and advantages of connecting railway lines are immense factors in the success of this port. In 1889, of the 247,453 tons of merchandise received by rail and shipped out by sea, 146,080 tons passed over the branch railway. Hii.svccr to Question Xo. 14 There is a system of lighterage, owned and operated by private enterprise, but its advantages as a facility of the port are quite DOCKS AND TERMINAL FACILITIES. 253 limited, owiüg to the existence of deep water in the harbor entrances and in the docks. The charges are thirty-eight cents a ton. Answer to Question No. 16 • I have not. Answer to Question No. 17 : Cereals, principally wheat. In 1889, of the total port receipts by sea, amounting to 2,794,755 tons, 788,967 tons were grain. U. S. Consulate, Marseilles, November, 1895. MELBOURNE (Victoria, Australia). [The report oí Daniel "W. Maeatta, U. S. Consul-General.] The questions propounded by the State Board on Docks and Ter¬ minal Facilities of Massachusetts are answered as fully as circum¬ stances would permit as follows ; — Answer to Question No. 1 : As a port in competition with other Australian ports there has been no marked success in Melbourne. It was necessary, however, in the interests of shipping, the mercantile community and the public, to provide docks and terminal facilities to accommodate the largest class of ocean-going vessels, and in this respect this port is not behind any of the Australian ports. Ansiver to Question No. 2: There are no special physical features which enter into the success of this port, beyond its central position as a distributing one. Answer to Question No. 3 ; The history of Melbourne as a port shows that dock accommoda¬ tion and terminal facilities cannot be made a success except under the best possible management, and with charges which are not in excess of a rival port, such as Sydney. 254 DOCKS AND TEKMIXAL FACILITIES. ^l/iscer to Question No. 4: The custom authorities at this port are of the opinion that the establishment of docks, wharves and terminal facilities cannot be sat¬ isfactorily accomplished by private enterprise, nor can the interests of the public be thereby fairly considered. Answer to Question No. 5 : The government and harbor trust own the whole of the wharves and terminal facilities in Melbourne, including one dry dock capable of accommodating vessels 500 feet long and 27 feet deep; and in addition thereto there are three private docks for painting and repair¬ ing vessels, on leasehold property, vested in the Melbourne Harbor Trust, which are worked independently of the government and of each other, and are liable to municipal rates. Answer to Question No. 6 : The Melbourne Harbor Trust was established by Parliament in the year 1877, a corporation for the regulation, management and im¬ provement of the port of Melbourne ; and for tiiese purposes it was endowed with a revenue, nine-tenths of wliich is derived from wharfage rates on imported goods. The harbor trust is composed of seventeen members, and has the power to take, purchase, sell, lease and hold lands and other property, subject to certain restric¬ tions. Ansicer to Question .\o. 7; See answers to questions Nos. 5 and 6. A7isiver to Question No. 8 ; The commercial advantages of public over private ownership are, that with juiblic ownership steps can be taken to meet the requirements of any port proposed to be established in a more complete manner than could be effected by private proprietors, inasmuch as such State owner can become legally possessed of public lands free of cost, and therefore can erect more commodious and permanent works at a more economical rate than private owners, and consequently are in a posi¬ tion to supply the necessary accommodation for shipping at a more reasonable charge. DOCKS AND TERMINAL FACILITIES. 255 Answer to Question No. 9 : With the exception of the dry docks, which are leasehold, the wharves, dock property and railways at the formation of the port of Melbourne were public property ; and upon the establishment of the Melbourne Harbor Trust Commission the portion necessary for wharves and wet docks was, by the act of Parliament, vested in that body, on which borrowing powers have from time to time been con¬ ferred by the Legislature for the purpose of construction, etc. Ansiver to Question No. 10: The revenue derived from the docks and wharves is a charge upon the vessels and the cargo ; the landing charge is a charge upon the cargo. Answer to Question No. 11 ; There is a direct main line railway connection with the docks and wharves. Answer to Question No. 12: The railway lines communicating with the docks and wharves, as well as all the lines of the colony, are owned and controlled by the government. Charges on goods between Melbourne and vessels lying at either the Port Melbourne or Williamstown piers (about five and one-half miles distant) are from fifty to seventy-five cents per ton, according to the character of the same. Answer to Question No. 13: It is difficult to apportion the success due to the railroad system. Answer to Question No. 14 : There are private lighters and tug steamers in this port. The charges may be taken as seventy-three cents per ton, weight or measurement. Answer to Question No. 15 : This port has no special distributing facilities -yv-lúch do not exist ij-) ftil feptfi-itl7 establislied ports, 256 DOCKS AND TERMINAL FACILITIES. Anstoer to Question No. 16 : In this port, when borrowed funds were available to construct docks and tenninal facilities, the common failing was indulged in of providing accommodation considerably in advance of reasonable re¬ quirements, and the expenditure has not been warranted by results. % Ansiver to Question No. 17 : Wool and wheat. Ansieer to Question. No. 18; It would be as well to conclude with the opinion of Dr. H. N. P. Wollaston, the permanent head of the department of trade and cus¬ toms of this colony, on the question of public ownership of docks and wharves. He says : — First. — Under ordinary conditions docks and wharfage facilities for ships should be owned and controlled by public representatives. The advantages to be derived thereby are as follows : — A more ready and economical manner of obtaining possession of any land and water frontage required for the berthage of vessels than would be pos¬ sible in the case of private ownership. The regulation of port charges so as to aid the commercial prosperity of the district, whereas private owners when fixing charges would in all p)robabilit3r be guided solely by their personal interests, and under such circumstances the general commercial prosperity of the city would be detri¬ mentally aflected. As etïecting the fixing of charges for the use of docking and wharfage facilities, it may further be mentioned that the large amount of money necessary to provide harbor accommodation for a first-class port could not be borrowed at so low a percentage by any private company as it could be by public representatives, who, moreover, might, as occasion required, be satisfied with a return equal to the interest on the borrowed capital, whereas private owners would not be in a position to accept a similar return on the capital cost. Second. — The arguments used in defence of private ownership are that it insures competition and consequently reduces port charges, in addition to afibrding more prompt attention to the interests of merchants and shippers. Such arguments appear to assume that public representatives are unable to obtain as equally economical,honest and capable servants as private owners do, — otherwise these arguments are of no value. Third. — Sea-port cities are dependent for their commercial growth upon the establishment of docks and wharfage facilities, and as an instance of this fact it may be mentioned that the city of Glasgow owes its present prosperity as a commercial centre and sea-port to the improvement of the river Clyde, — an improvement which would never have been effected by private enterprise. DOCKS AND TERMINAL FACILITIES. 257 Fourth. —It is diliicult to instance any city with merchant shipping facilities that can trace its progress and prosperity to any other source than the establishment of public docks and wharfage facilities controlled by duly appointed public bodies. It may bo taken for granted that the success or otherwise of any under¬ taking of the character under notice mainly depends, in the first instance, on the experience and ability of the engineer engagiid to design and carry out the required works, and, while preparing a scheme of dock facilities sufficient to meet all necessary requirements for many years, care should be taken not to provide docking facilities at any stage more than three years in advance of expected requirements U. S. Consulate, melhounxe, Sept. 19, 1895. MONTREAL (Canada). [From tlie report of Wendell A. Axdekson, U. S. Consul-General.] In considering the merits of this port and its shipping facilities, it should be borne in mind that it is practically a summer port, being ice-bound and closed to shipping nearly six months of the year, which is an insuperable obstacle to its progress in competition with the ports of the Atlantic sea-board. The measure of success attained by this port is largely due to its being the natural junction of the ocean and inland shipping and located much nearer the majority of the population of the western part of the country, regarded both as consumers of imported goods and producers of exports. It has been made accessible to mercantile vessels of the largest size by the deepening and improvement of the channel of the St. Lawrence River eastward nearly to Quebec. The harbor improve¬ ments from time to time have been made equal to the requirements resulting from the enlarged channel. There is no tide to hamper vessels in lo.ading or unloading. The harbor is well sheltered, and no sea can ever cause damage to vessels which are moored at wharves and very seldom have another vessel alongside (excepting grain elevators and barges with cargo for them). The ownership of the wharves is wholly [)ublic, and the control of same is vested in a Board of Harbor Commissioners, consisting of eleven members ; of this body, six members are appointed by the Dominion government, and hold ofllce during pleasure ; the mayor of Montreal is a commissioner, ex officio ; and four are elected, one each by the Board of Trade, Corn Exchange Association, District Cham¬ ber of Commerce and the shipping interest. 258 DOCKS AND TEEMINAL FACILITIES. .This control has been in the hands of the Harbor Commission for over sixty years, and, as no private wharves ever existed, there have been no private owner's to arrange with. These commissioners are also pilotage authority of the Montreal district, extending from Mon¬ treal to Quebec, one hundred and sixty English statute miles. The cost of constructing wharves and improvements of the harbor has been defrayed by issue of debentures, originally bearing interest at the rate of eight per cent., and lowering rates until now money is secured at about four per cent. The revenue to meet interest on the debt and for maintenance and management is at present derived from charges levied on cargoes in transit, both inwards and out¬ wards. These dues have been considered quite burdensome on the transit trade by many, but the commission has been unable to reduce them on account of its obligation to bondholders. Tonnage dues on vessels have not been levied since 1888. Respecting the comparative merits of public and private ownership there is quite a difference of opinion, although, as before stated, pri¬ vate ownership has never been tested here. On the one hand, it is thought to be of advantage to commerce to have, as at present, a uniform and well-considered tariff of charges and the same set of regulations. On the other hand, it is claimed that public ownership does not of itself afford any commercial advantages over private ownership, for, with the property in possession of numerous owners, and especially if the railroads had investments in the wharf property, there would be competition which would be of great value to ship¬ ping interests, especially during dull seasons. There are two railway tracks extending the whole length of the harbor, with sidings, owned and controlled by the Harbor Commis¬ sioners ; but the trafllc is worked by the Grand Trunk and Canadian Pacific railways, to each of which a separate track is leased. Vessels cannot discharge and receive freight direct into or from cars, but the transfer is made by wagons which have to pass over a few hundred feet of wharf space from vessels .and sheds to the cars, and rice versa. For the use of these tracks on the whiirves each rail¬ way pays to the commissioners one thousand dollars per annum for each mile of track used by it, and also pays the regular wharfage rate on goods landed on or carried away from the wharves by cars, which are not for or from vessels. The charges by railways on freight are included in the through rates made between them and vessels, and cover also the wharfage dues. For special local business the railways generally charge two dollars per car for switching from their own stations to (he wharves. Tbef^e- vailway cQuuectipHS have heeu awd are gf the greatest value DOCKS AND TERMINAL FACILITIES. 259 to the foreign trade of the port, as regards all traffic excepting export grain. There is no lighterage at this port, as casually understood. Ves¬ sels are, to a great extent, loaded from lumber barges, floating elevators, and a large cattle transfer boat from the river or outer side. The terminal and distributing facilities are not equal to those of several of the principal ports in the United States. There is, how¬ ever, the magniflcent system of St. Lawrence canals, with a depth of nine feet of water as far as Lake Ontario, and the two great rail¬ ways, the Grand Trunk and the Canadian Pacific, with their many connections westward, all competing for the ocean-borne traffic. As to the traffic of the port, the imports consist largely of East and West Indian produce and European manufactured goods, the principal articles being sugar, tea, cotton and manufactures.of wool, coal and iron ; the principal exports are animals (cattle, horses and sheep), lumber, grain, cheese, butter, flsh and meats. Tj. S. Consulate, Montkeal, Nov. 16, 1895. The following extract from the "Transport," published in London, Eng., gives in condensed form a very clear and cor¬ rect review of the growth and present condition of the harbor of Montreal : — Originally there were shoal places in Lake St. Peter and elsewhere which prevented vessels drawing over 10 feet of water from reaching Montreal during low water in autumn. In 1844 the deepening of these by dredging was undertaken by the Canadian government, but the work was shortly afterward handed over to the Harbor Commis¬ sioners of Montreal, by whom it was continued until 1865, when a ship channel of 20 feet depth at low water had been attained. Deep¬ ening was resumed in 1874 and carried through to 22 feet in 1878, then continued till 25 feet was attained in 1882, and then prosecuted until 1888, when 27¿- feet had been attained at ordinary tides in all parts of the river subject to tidal influence, and at lowest water in autumn in the part of the river which is beyond the influence of the tides. At this stage the deepening was undertaken by the Dominion government, and the Harbor Commissioners were reimbursed their expenditure. Government continued the work for the attainment of a depth of 27 J feet at lowest water in the tidal portions, as had been done elsewhere, and this is now nearly completed. For the inland navigation above Montreal magniflcent systems of canals have been provided by the government. The Ottawa and 260 DOCKS AND TERMINAL FACILITIES. likieau canals, with locks of a ininimnm size of 134 by 33 by 5 feet, were opened through in 1834, and give access to Lake Ontario, which had already been connected with the upper great lakes by canals. The famous St. Lawrence canals, with locks of 200 by 45 by 9 feet, were completed in 1849, between Lake Ontario and ocean ports. These in turn are now being enlarged to a lock capacity of 270 by 45 by 14 feet depth of water, capable of passing steamers carrying 1,800 tons weight of cargo. The harbor of Montreal has grown with the commerce brought to it by the ship channel and canals. In 1825 there were only two small wharves, with a combined frontage of about 1,120 feet and 2 feet depth of water at low stage. In 1830 the Harbor Commission¬ ers of Montreal were constituted by government for the managem.ent of the harbor, and by them the construction of the first regular sys¬ tem of wharfage was undertaken. Between 1830 and 1832 several of the present wharves, including the Island wharf and those imme¬ diately above and below it, were built, with from 5 to 25 feet in front of them, replacing such of the original shallow-water wharves as remained, and increasing the wharfage to nearly a mile of front¬ age. No further additions were made until 1840, but in that and the following six years extensions were made both above and below those of 1830 and 1832, increasing the total frontage to 1.55 miles. The basins of the enlarged Lachine canal, opened in the spring of 1848, supplied a considerable extent of wharfage; but in the harbor proper, excepting two new wharves built in 10 feet of water in the lower part, no further additions were made to the wh.arfage until 1856. The dredging operations for deepening the river below the city were by that time sutRcieutly advanced to allow of vessels reach¬ ing Montreal with a draught of 13 feet at ordinary low water, and further deepening was determined upon. A regular line of steamers between Montreal and Liverpool had also been established, and the necessity for deep-water frontage wdiich thus arose has been met by the construction of a wharf in 20 feet of water at the lower limits of the city and below the current of St. Mary. The deepening of the shallow upper parts of the harbor and the rebuilding of some of the old wharves to a greater depth was also undertaken about the same time. The deepening and improvement of the central part of the harbor and the extensiou of its wharves upward and downward have been regularly continued to the present time, as the deepening of the ship channel and the increase of trade demanded, until there is now a line of wharves from Point St. Charles to Hochelaga, with a frontage of over 5 miles. In order to further meet the requirements of growing trade, a systematic plan of harbor enlargement, and of protection to BOCKS AND TEEMINAL FACILITIES. 261 the city from floods caused by ice blockades, was devised by the harbor eiigiueer, Mr. John Kennedy, M. Inst. C.E. This, after modifica¬ tion, to meet as far as practicable the views of representatives of the city, of ocean and inland shipping and of the railway and other interests, was adopted by the harbor and city authorities, and con¬ struction was commenced in 1891. The upper part of the harbor is to be enclosed by an embankment 1-^ miles in length, so placed as to protect the enclosed area from the violent action of the ice and from the strong current of the main river. The enclosed basin will thus be converted into a slack-water basin, in which vessels can be safely and conveniently moved about in summer or laid up in winter, and on the wharves of which permanent ware¬ houses or other structures may be erected. Within the lower part of the basin there are to be four large pier wharves, 230 feet wide by 1,040 to 1,550 feet in length, all connected with the main shore wharves, and placed at such angles as to afford easy access for ships as well as for railway cars and ordinary vehicles. The front street is to be widened and the low-lying parts of the city are to be protected from floods by a parapet wall carried along between the street and the wharves. In the wall there are to be ample openings for traffic, with water-tight gates, to be closed in flood time. The basins will in the first instance be made 21^ feet deep at low water, the depth of the ship channel to sea, but the wharves will be founded at such depth as to allow of subsequent deepening to 30 feet. The whole discharge of the Lachine canal locks and milling power will be through the basin, the volume being sufficient to change the contents twice a day, and it will, therefore, be kept in wholesome condition. The deep-water frontage afforded by the four new piers and the new shore wharves between the foot of the canal and Vic¬ toria pier will be 14,050 linear feet. This will supersede 5,723 linear feet of deep-water front and 2,564 feet of shallow-water front, or in all 8,287 linear feet of existing wharfage, thus giving in the most valuable part of the harbor 5,763 feet increase of space, and con¬ verting the whole into wharfage suitable for ocean vessels of the largest class. The outer embankment, or guard pier, is already half built, and a considerable part of the dredging of the basins is done. The disposition of the upper part of the basin, above the foot of the canal, is not yet determined upon, but the site is favorable for a high-level dock, entered from below by a lock and connected above with the basins of the canal. At Ilochelaga, the down-stream end of the harbor, the project comprises a stretch of shore wharves and five piers, 180 feet wide by 500 to 850 feet long, making in all a wharf frontage of 7,987 linear feet, all of 27.^- feet depth at low water. Of this, the uppermost 262 DOCKS AND TERMINAL FACILITIES. stretch of shore wharf and the lowermost pier are already built, and a second pier is under construction. An additional project, not yet adopted, is the construction of extensive inland docks at Hochelaga in rear of the new piers. The present capacity of the harbor, and its capacity when enlarged according to the adopted project, are as follows : — Capacity at Beginning of 1895. AVharfage of 274 feet depth at low water, Wharfage of 25 feet to 20 feet depth at low water, . Wharfage under 20 feet depth at low water, . Future Capacity (yinder Adopted Project). Wharfage of 274 feet depth at low water. Wharfage under 20 feet at low water. Linear Feet. . 18,128 2,650 6,184 26,962 Linear Feet. . 37,092 3,620 40,712 At the date of Canadian confederation, 1867, the indebtedness of the harbor was about $1,126,000; since that time there has been expended on it over $2,850,000, making in all $3,975,000; the present indebtedness is $2,840,000, being a difference of $1,135,000, which has been paid out of the revenue. The whole of this has been provided by the Harbor Commissioners, and the interest on the bor¬ rowed portion is met by wharfage dues levied on the cargoes, the vessels themselves being free. The following table shows the number and tonnage of sea-going and inland vessels which arrived in port during the last ten years, and tbe values of the imports and exports of the port for the same period : — YEAR. Sea-going Vessels. Inland Vessels. Value of Merchandise Exported. Value of Merchandise Imported. Number. Tonnage. Number. Tonnage. 1885, .... 629 683,854 5,003 724,975 $25,274,898 $37,413,250 1886 703 809,699 5,521 809,819 28,078,830 40,469,912 1887 767 807,773 5,367 791,452 29,391,798 43,100,183 1888 655 782,473 5,500 863,014 24,049,638 39,866,527 1889, .... 695 823,165 5,847 1,069,709 32,638,270 47,191,888 1390, .... 746 930,332 5,162 966,959 32,027,176 44,102,786 1891, . 725 938,657 5,268 1,119,484 39,464,783 48.418,569 1892, .... 735 1,036,707 6,200 1,049,600 45,648,310 47,667,408 1893 804 1,151,777 5,244 1,153,600 48,205,531 53,796,061 1894 734 1,096,909 4,666 979,809 40,710,700 42,514,597 DOCKS AND TERMINAL FACILITIES. 263 The tonnages are confined to the seven months during which navi¬ gation is open, but the imports and exports cover the whole of each year. K"EWCASTLE-UPON-TYNE (England). [The report of William S. Campbell, U. S. Consul ] The river Tyne, before the commencement of the present admir¬ able improvements made under the administration of the Tyne Com¬ missioners, — a commission created by act of Parliament in 1850 and authorized to borrow £4,312,000 sterling for the improvement of its navigation, — was a shallow and tortuous stream, with a bar at its mouth, and only navigable at high water, and above a point 12 miles from its mouth, for boats and small craft, and exposed at its entrance to the heavy seas and rollers from the North Sea during the frequent easterly storms. In this work the commissioners have already expended about £4,025,000 sterling. Now the heaviest armored ships of war are built upon its shores and, from a distance of 15 miles from its mouth, sent successfully to sea with all armament on board; Newcastle stands in the first rank of British ports, and the most important one on the east coast of England; and the river Tyne for 15 miles presents a spectacle of busy industry that cannot be witnessed on any other river in Great Britain or in the world. In accomplishing all this marvellous trans¬ formation and in building the swing bridge, it is stated that more than £11,000,000 sterling have been expended. The docks constructed are: Northumberland dock, 55 acres area; Albert Edward dock, 25 acres area; Tyne dock, 50 acres area. The Tyne dock is the property of the North-eastern Railway Corporation ; its tolls and charges are identical with those of the commissioners' docks. There are also extensive stone quays at which large vessels can load or discharge cargo and long lines of mooring buoys on either side of the central channel. In addition to these, there are no less than twenty-one graving docks and fourteen repairing slips, some of them capable of accom¬ modating the largest class of vessels, and 90 acres of timber ponds for the accommodation of the timber trade. In all the docks, and some of the quays, are numerous coal spouts (called staiths), capable of loading into the same vessel from 800 to 1,000 tons of coal per hour. The piers, or jetties, at the mouth of the river were commenced 264 DOCKS AND TERMINAL FACILITIES. about forty years ago, and are only just now declared finished. These are most substantial, and their construction has been attended with great difficulties, and upon them over £2,000,000 sterling have been expended. The north pier is 3,059 feet in length, the south pier is 5,317 feet in length, and the entrance between them is about 1,300 feet wide; these serve not only to protect the river from the heavy rollers from the sea in easterly storms, but form the harbor of refuge, of which more than 500 vessels have availed in a single year. The foregoing sketch I have thought necessary to an intelligent comprehension of the special conditions which attach to the Tyne port, and will meet the first seven questions of the circular. Answer to Question No. 8 : The commissioners believe that public ownership of docks is to the advantage of commerce, as a public administration is not seeking to make dividends, and has no other motive than to benefit and conse¬ quently extend the trade of the port. Anstoer to Question No. 10: The revenue from the docks and quays and light and river dues come from both ships and goods, the ship paying for landing goods on the dock quays. The revenue amounted to £332,000 sterling the past year. Ansiver to Question No. 11 : In all the docks are lines of railway, connecting with the main lines of the entire kingdom, and vessels can discharge or receive cargo direct from the cars. Ansioer to Question No. 12 : The commissioners own and control the lines within their dock estate; these connect with the railways of the North-eastern Railway Company. Answer to Question No. 18 : Without the railway connections business could not be successfully carried on. DOCKS AND TEKMINAL FACILITIES. 265 Ans/ce?- to Question No. 14: There are steam lighters, principally for goods to or from the city to the docks ; they belong to private owners, and the charges are moderate. Aiisiver to Question No. Id : The terminal and distributing facilities here are about the same in all the principal ports in the kingdom. Ansicer to Question No. 16: The commissioners state they have no such knowledge. Answer to Question No. 17: The principal staple of exports is coal and coke, the product of the mines of Northumberland and Durham ; the shipment for the past year was a little over 1,000,000 tons per month. Ansioer to Question No. 18 : A sinking fund is provided for the payment of all indebtedness. In 1947 the river will be free. U. S. Consulate, Newcastle-upon-Tyne, Aug. 17, 1895. The followina: communication was also received : — o Tyne Improvement Commission, Newcastle-upon-Tyne, July 2, 1895» The Tyne Improvement Commissioners are a body constituted by an act of Parliament passed in the year 1850. They consist of twenty- four members, viz. : one life member named in the act of 1850 ; two life members appointed by the Board of Trade under the provisions of the same act ; fifteen members appointed annually by the corpo¬ rations on the banks of the Tyne, viz., six by Newcastle Corporation, two by Gateshead Corporation, three by Tynemouth Corporation, three by South Shields Corporation, one by Jarrow Corporation ; six mem¬ bers appointed triennially by the three classes of due payers, viz., two by ship owners, two by coal owners, two by traders. They re¬ ceive no payment whatever for their services. Since the commission was formed there has been expended out of the taxation which the commissioners are authorized by their various 266 DOCKS AND TERMINAL FACILITIES. acts to levy on shipping and on merchandise carried therein large sums of money in deepening, straightening and widening the river, building piers at the entrance to the harbor and making docks, ship¬ ping places, etc. These works and improvements have conduced to the great development of the trade and commerce of the port and the district which it serves. Under the provisions of their special acts the commissioners are authorized to borrow £4,312,000 on the security of the rates, tolls and dues leviable by them, and they have up to the present time bor¬ rowed about £4,225,000. They are required to repay the whole of the money borrowed by them by the year 1947, when of course the port will practically be free. The following answers your several queries, viz. : — Ansicer to Question Ab. 1 : To the successful carrying out by the Tyne commissioners of a comprehensive scheme of river improvement, the construction by them of extensive piers at the entrance to the harbor, and of docks and coal shipping staiths, etc., in the port. Answe)- to Question No. 2 : The position of the Tyne makes it the most important port on the north-east coast of England, and the principal outlet for a large por¬ tion of the coal fields of Northumberland and Durham. Ansiuer to Questions Nos. 3 and 4 : The port and docks belonging to the commissioners are adminis¬ tered and controlled by them solely in the interest of the public, with¬ out regard to the earning of dividends, as in the case where ports and docks belong to private owners ; which is naturally conducive to the success of the port, and to the advantage of those who use it. Answer to Question No. 5 : The conservancy and management of the port are entirely in the hands of the Tyne Improvement Commission. For answers to questions Nos. 6, 7 and 8 see above. Answer to Question No. 9 : The conservancy of the port was formerly in the hands of the Cor¬ poration of Newcastle-on-Tyne, who levied dues on shipping and on DOCKS AND TERMINAL FACILITIES. 267 imports and exports. By the act of 1850, forming this commission, the powers,, duties and jurisdiction of the corporation as conserva¬ tors of the river and port were transferred to the commissioners, and by this and subsequent acts of Parliament the commissioners were authorized to levy dues on shipping and on imports and exports. Ansiver to Question No. 10: The ship pays the charges for landing goods onto the dock quays. Answer to Question No. 11 : Yes; direct connections between the commissioners' docks and the railway systems of the country exist. Answer to Question No. 12: Yes; the commissioners own and control a line of railway within their dock estate nearly a mile long, connecting the docks with the railways of the North-eastern Railway Company, and through that company's railways with the other railways of the country. Ansioer to Question No. 13 : Without railway connections business could not be carried on with success or advantage. Answer to Question No. 14 : The commissioners do not perform lighterage. This is done by private firms, who make their own charges. Answer to Question No. 15 : The terminal and distributing facilities of the port are similar to those of other similar ports in this counti'y. Answer to Question No. 16: No. Aiisiver to Question No. 17 : Coal exports and general imports and exports. R. Urwin, Secretary Tyne Improvement Commission ^YwcAaTLJä.upo^■-TyNB, July 2, 1895, 268 DOCKS AND TEEMINAL FACILITIES. ODESSA (Russia). [From the report of Thomas E. Ui-knan, U. S. Consul.] Answer to (¿uestion No. 1 : Odessa has no rh'al ou the Black Sea. Its success is attributable to its location, being the natural outlet for an enornions extent of fanning country. Answer to Question No. 2: The physical features of the Odessa harbor contribute but little to its success, as it may be said to be situated almost entirely on an open sea. Anstver to Questions Nos. 3 to 9 inchisive: The entire management and control of all harbors in Russia, as well as the ownership of all landing docks, wharves and quays, are vested in the imperial government. Ansiver to Question No. 10: The entire revenue of the docks and quays comes from charges on the vessels, in shape of light dues, tonnage dues, etc. The light dues ($3.60) are payable by all classes of sea-going vessels, native and foreign, every time they enter a port in this country, whether laden or in ballast. The cliarges are the same at all ports, whether thei-e are lights or not. Tonnage dues are collected from all classes of vessels, laden or in ballast, native or foreign, and engaged in all trades ; the rate of 5 copecks, or 2.J cents, per last inwards, and 5 copecks per last outwards. The last equals two tons. There are no special privileges. Passenger steamers running on a regular line only pay dues once for the season. Lastage and anchorage dues at Odessa for foreign-going vessels are 29 copecks (14J cents) per last, one last being equal to two British net tons registered. Mail steamers of all nationalities, with regular departures and arrivals, pay full dues first voyage of each year and half dues after. All of these charges are levied by the customs authorities. Russian vessels engaged in the coasting trade (and there are none other) pay 10 co¬ pecks per last, which is levied by the town authorities. The landing charges arc paid by the cargo, which is taken from the deck of the ship to the quay for 1 cent for every 36 pounds weight. DOCKS AND TERMINAL FACILITIES. 269 Answer to Question No. 11 : Direct railroad connection with the docks and piers, so that ves¬ sels can discharge and receive freight from trains. Answer to Question No. 12 : There is a local line of railway, both elevated and on the level, connecting the main lines with the docks. It is owned and con¬ trolled by the Russian government. The rate from the grain maga¬ zines to the port by rail is 9 cents per 360 pounds ; the distance is miles. The grain is carried in bulk. Answer to Question No. 13 : The export of cereals from the port of Odessa for the year ending Dec. 31, 1894, was 2,500,000 tons, of which the railway carried 1,500,000 and the waterways 1,000,000 tons. Ansiver to Question No. 14: Vessels drawing 26 feet of water can load at this port, hence there is no necessity for lighterage. Ansiver to Question No. 15 : It will take several years to complete the work on the improve¬ ments of the Odessa harbor. The present terminal and distributing facilities are very good, but they are inadequate to the ever-growing demands of the trade of the port. Answer to Question No. 16: Public funds, and public funds only, are employed for docks and terminal facilities. Answer to Question No. 17 : The chief staple of traffic consists in the export of cereals. Answer to Question No. 18: Export cargoes pay ^ copeck per pood (36 pounds) to the munici¬ pality of Odessa, which sum is devoted to the paving and repairing of streets. U. S. Consulate, 0»essa, Oct. 31, 1895. 270 DOCKS AND TEEMINAL FACILITIES. QUEBEC (Canada). [From the report of Phillip B. Spenge, U. S. Consul.] The port of Quebec can boast of exceptional facilities for the accommodation of shi])ping. In her harbor, notwithstanding that it is hundreds of miles from the sea, the entire British navy might safely ride at anchor. It extends from the mouth of the Chaudiere on the west to St. Patrick's Hole on the east, a distance of over ten miles in length, the river being lined through, on either side, with wharves or booms, with the exception of where it washes the Beauport beach, while the new Princess Louise docks at the mouth of the St. Charles are the admiration of all who see them. These docks are of comparatively modern construction, and by the people of Quebec great things are expected in the shape of increased commerce from the facilities afforded by these new works, which have been made under Federal government control by the Quebec Harbor Commission. Almost all the other wharves and docks of this port — with the exception of the government graving dock on the Levis, or south side of the river, and the Queen's wharf on the Quebec side, immediately under the citadel ■— are private property. The Queen's wharf is the property of the Federal department of marine and fisheries, and is used by the government steamers that supply the lighthouses, attend to the buoys and protect the fisheries. Of other public property, some is held by the city corporation of Quebec for the accommodation of market steamers from outlying country parishes, who pay wharfage for the use thereof. Some few wharves along the city front, although the property of the Harbor Commissioners, are, in their management, virtually private wharves, being leased by the commission to mercantile importing firms and the Quebec Steam¬ ship Company, which runs vessels to the Gulf ports and the West Indies. Other wharves arc owned respectively by the Allan Mail Steam¬ ship Company, the Richelieu & Ontario Navigation Company, running steamers hence both to Montreal and the Saguenay, and by the Quebec & Levis Ferry Company. Outside of the above-mentioned wharves, which are used by the vessels belonging to their owners, the value of most of the private wharf property in this port has so diminished within the past twenty-five years that much of it is now practically useless. This is directly traceable to the vast decline in the square timber export trade, and the general substitution of steamships for sailing vessels in the deal carrying trade. The deçi'fiase ju the Yohime of shipping p,t this ppi't may be seea DOCKS AND TERMINAL FACILITIES. 271 by the fact that, while the mimber of vessels entered inwards and outwards at Quebec was 1,004 and 1,007 respectively in 1870, it was 849 and 842 respectively in 1880, 480 and 458 in 1890, and 089 and 294 in 1894. The disproportion in tonnage is not quite so large, because steamships of great burden have largely taken the place of sailing vessels, as already reported. IMany of the private wharves heretofore used for the accommoda¬ tion of sailing ships are unavailable for large steamships, not having suflicient frontage ; but, even if they had, they would not be utilized, as outside of the regular liners which use their own wharves, or (when landing immigrants) the Harbor Commissioners' wharf, upon which the government immigration buildings are erected, most steamships that take on or put off cargo in this port either anchor in the stream and use lighters for the purpose, or moor to the Louise docks, though some few utilize suitable private wharves situated in what are known as the timber coves, a little west of the city, and importers of whole cargoes of coal, salt, etc., discharge steamships at their own wharves, generally situated along the city front. The harbor improvements in the mouth of the St. Charles have been virtually constructed by government. The Harbor Commis¬ sion, under the provisions of special legislation, issued debentures to pay for the work, and interest upon those debentures is guaranteed by government. The commission consists of nine members, of whom five, a controlling majority, are named by the government, two are elected triennially by members of the mercantile element paying a certain amount of harbor dues in the port, one bj' the Quebec Board of Trade and one by the Levis Board of Trade. Over 83,200,000 has been expended by the commission upon these works. The ex¬ terior of these works is formed by the Princess Louise embankment and quay wall on the north side of the docks, which is 3,960 feet long and 330 wide. Upon it are the Dominion government immi¬ gration buildings, the Castle Garden of Canada, several railway lines and sidings, the Canadian Pacific Railway grain elevator and numbers of warehouses and storehouses. Cold-storage facilities are shortly to be provided. The space enclosed between this embankment and the wharves which jut out from St. Andrew Street, on the other side, is divided into two unequal parts by the cross wall, furnished with an opening controlled by water gates. This space is nearly 60 acres in extent. The outer or tidal basin is 20 acres in area and 25 feet deep at the height of the lowest tides for a length of 1,250 feet, and the inner one 36 acres in area and 25 feet deep for a distance of 2,160 feet. The largest vessel afloat can therefore enter these docks and lie in 272 DOCKS AND TERMINAL FACILITIES. perfectly land-locked water, while taking on cargoes from alongside cars which run down upon the wharves from the Canadian Pacific, Lake St. John and other railways. The revenue of the Harbor Commission so far is barely sufficient, after paying working expenses, to leave one per cent, for interest upon the cost of the work. Last year the receipts were SG.'),650.02. The revenue of the commission comes from moorage and wharfage dues, and for the payment of the latter the owner of the cargo is responsible. So far the success following the construction of these works has not been equal to what was expected of it. This is partly due to the tendency of ships to run as far inland as possible, which will be over¬ come to some extent if the proposed fast Atlantic steamship line to the St. Lawrence becomes an established fact, as their greater draught will prevent them ascending the river to Montreal. Another reason why Quebec's shipping has not progressed in proportion with its improved facilities is that Canada's largest exporters of wheat, flour, cattle, etc., are all personally interested in the success and prosperit}' of the port of Montreal, and so overlook the superior ad¬ vantages of shipping from Quebec, especially of live cattle, hundreds of which often die of the heat on ship's passage from Montreal to Quebec. An improvement is looked for here as soon as Quebec's advantages are more generally recognized by Canadian shippers, and when the increase in the shipments of grain from the north-west shall overtax the resources of the city of Montreal. The question of gov¬ ernment or other public ownership or control of wharves or docks here does not, therefore, enter into the question of the success and prosperity or otherwise of the port of Quebec. So far in this report upon the docks and wharves of Quebec, the matter of supplying information that would serve as answers to the questions prepared by the Massachusetts State Board on Docks and Terminal Facilities has been kept constantly in mind. In case any have been overlooked, it may be well to report further and categori¬ cally upon them, as follows : — Answer to Question No. 1 : The measure of success that is enjoyed by the port of Quebec is largely due to its natural advantages, but much of it would be want¬ ing but for the improved facilities afforded by the public harbor works at the mouth of the St. Charles. DOCKS AKD TE1ÎMIXAL FACILITIES. 273 Answer to Question Xo. 2 : Amongst the physical advantages of the port of Quebec are the extent and sheltered character of its harbor ; the depth of its water, which has enabled the "Great Eastern" to swing at anchor opposite the citj- ; its excellent anchorage and absence of great heat rendering it especially favorable, if the fact were only more generally recog¬ nized, for the shipment of live stock, dairy produce and grain. Ausirer to Question Xo. 3: To no extent whatever. Ansiver to Question Xo. 4: Not at all. Aiisirer to Question Xo. 5 : Already fully answered in first part of this present report. Ansieer to Question Xo. 6 : Same answer as to the preceding question. Answer to Question Xo. 7: Not at all. A?iswer to Question Xo. 8: Can only say that, so far as Quebec is concerned, without public control of the property in and about the mouth of the St. Charles there would have been none of the improvements made by the Har¬ bor Commission. Private enterprise here would not have proved equal to the undertaking. Answer to Question No. 9 : Where public ownership exists here, wharves were purchased from former owners at prices mutually agreed upon by the Harbor Com= mission and city corporation, and paid for by the sale of debentures. 274 DOCKS AXD TERMINAL FACILITIES. Änsii-er to Question AN. 10: Charge.s on cargoes yield the principal part of the revenue of ■wharves and quays, and owners of cargoes are responsible tberefor. Ansicer to Question AN. 11 : \ es ; with Canadian Pacific Railway and connections and Lake St. John Railway and connections upon the Louise enibaukinent on the Quebec side of the river, and with Grand Trunk, Intercolonial and Quebec Central railways and their connections on the Levis or south side of the river. Ansicer to Question AN. 12 : No; direct communication. Answer to Question AN. 13: A large proportion of the deals shipped here are brought down by rail, especially upon the Lake St. John Railway; and if, as many expect, a grain export and cattle-shipping trade be established here, both grain and cattle will be brought here by rail from the west. Ayiswer to Question AN. 14: Apart from changing cargoes directly from vessels to -udiarves, or vire versa, and from vessels to cars, or vice verso, there are timber towers that with small tugs tow cribs of timber to the sides of ves¬ sels, whence they are taken into the hold bj- the port-holes. A num¬ ber of batteaux are also employed by shippers in carrying out cargoes of deals or merchandise to the side of steamers or ships anchoring in the stream or in receiving portions of cargo for Quebec from incom¬ ing vessels. Charges vary, but are low. Answer to Question AN. 13 : Quebec has many and great terminal and distributing facilities. The extension of the Canadian Pacific Railw.ay onto the Louise em¬ bankment is the real eastern terminus on Canadian territory and on the St. Lawrence of that great transcontinental railway. The similar extension of the Quebec and Lake St. John Railway is the southerly terminus of that road, which runs through a great lumbering country, and will eventually also be the easterly terminus of the Quebec & DOCKS AXD TEEMIXAL FACILITIES. 275 Parry Sound Eailwaj', intended to make the shortest possible route between Duliith and the sea, and now in course of construction, in the port of Quebec are also the eastern terminus of the Grand TruUK Railway on the St. Lawrence, the western terminus of the lutercolo- nial Railway of Canada, and the northern terminus of the Quebec Central Railway, which runs through the gold fields of the Cbaudiere and the asbestos country of IMegantic, and has direct connections with the Maine Central and Boston & Maine railways. In addition to all the distributing facilities which these roads give, Quebec is able to trans-ship cargo from vessels arriving here from sea and distribute it hundreds of miles west of Montreal by rail before it could be un¬ loaded from the same vessel in the port of Montreal upon its arrival there. Anxirer to Question Xo. 16: Xot outside of Quebec. A/is«-er to Question Xo. 17 : Lumber is the chief staple of exports. AnsKer to Question Xo. 18: Mention may be made of the fact that the government graving dock .at Levis on the south side of this port is capable of receiving vessels nearly 500 feet long, and may be enlarged if necessary. It cost over $900,000. It was necessary for the large class of steam¬ ships running to the St. Lawrence, for the accommodation of which private enterprise would scarcely have provided. At the same time, it has reduced the business and value of smaller docks in private hands. Similarly, too, the public wharves and docks at the mouth of the St. Charles, though in many respects a boon to the port, have entered into ruinous competition with some private wharf owners. It may be remarked that the season of shipping at Quebec only lasts from the end of April to the end of November, though winter navigation of the St. Lawrence as far as Quebec is now known to be feasible, and a steam ferry crosses the river hero all the winter through. U. S. Consulate, Quebec, September, 1895. 276 DOCKS AND TERMINAL FACILITIES. ROTTERDAM (The Netherlands). [From the report of Lars S. IIeque, U. S. Consul.] Rotterdam has taken its place among the great sea-ports of the world. How rapid lias been its recent growth appears from the sub¬ ject table, showing the number and tonnage of sea-going vessels annually entering the port : — YEAR. Number of Vessels. Net Tonnage. YEAR. Number of Vessels. Net Tonnage. 1850, .... 1,970 393,393 1875, . 3,485 1,654,670 1855 2,247 513,971 1880, .... 3,510 1,728,305 1860, .... 2,449 673,839 1885 3,724 2,120,347 1865, .... 2,459 653,450 1890, . 4,535 2,918,425 1870, .... 2,987 1,189,571 1895, .... 5,199 4,214,940* * The statement does not include 2,300 fishing smacks and 32 foreign tug boats. A comparison of Rotterdam with other sea-ports will further show its rank as such : — 1893, 1894. Increase over 189.3. Ships. Tonnage. Ships. Tonnage. Ships. Per Cent. Tonnage. Per Cent Hamburg, 8,792 5,886,000 9,165 6,228,821 373 4.2 342,821 5.8 Antwerp, 4,418 4,692,211 4,640 5,008,983 222 5.0 316,772 6.7 Amsterdam, 1,558 1,152,339 1,666 1,281,340 108 1 '-2 129,001 11.1 Rotterdam, 4,631 3,566,170 5,109 4,143,403 478 ; 10.0 377,223 16.1 The phenomenal growth and prosperity of the port of Rotterdam, evidenced by the above statistics, is attributable, no doubt, to a com¬ plexity of causes, — as chief and fundamental among tiiese must be regarded its exceptionally favorable location as a natural terminal and distributing point for a very important industrial section of cen¬ tral and north-western Europe. Situated on the New Maas, which at present forms the main outlet of the Rhine, Rotterdam practically enjoys a monopoly of the rapidly increasing trade on this great commercial artery, and can offer cheaper rates and quicker transportation for merchandise destined for or com¬ ing from any point along the Rhine or immediately tributary thereto, than any of its sea-port rivals. DOCKS AND TERMINAL FACILITIES. 277 The Rhine is now navigable as far as Cologne by boats drawing from 9 to 10 feet of water, and the channel is being constantly deep¬ ened. Some of these Rhine boats approach 300 feet in length and have a carrying capacity of nearly 2,000 tons. From Cologne to Mayeuce, Frankfort and Mannheim, the available depth of the Rhine and Main is from 6 J to 8 feet, and boats of several hundred tons burden proceed as far as Strasburg, while smaller craft ascend to the very frontier of Switzerland. Holhand's share of the Rhine trafiic appears from the following statistics : — In 1891, 41,117 vessels passed the German customs station at Emmerich on their way to or from Germany. Of these vessels, 33,818 carried the Dutch flag. Tlie total movement of merchandise between Holland and Germany aggregated, in 1894, 0,401,158 tons; in 1893, 5,428,418 tons,—an increase for 1894 of 977,740 tons. Of this, Rotterdam's share was in 1893 3,290,048 tons and in 1894 4,130,074 tons, — an increase for 1894 of 840,026 tons. Inland navigation from Rotterdam is not limited to the Rhine. An admirable network of deep and well-kept canals, over 2,200 miles aggregate length, connects the port with every part of the Netherlands. There is not a village of any importance which does not send its boat to the Monday and Thursday markets at Rotter¬ dam. On these daj's some 1,600 canal boats may be seen crowded into the numerous havens of the city, presenting a most picturesque and .animated view. Leaving out of .account craft of less than 10 cubic metres, the city was visited in 1894 by no less than 78,713 canal and river boats, aggregating in carrying capacity 9,210,850 metres. The total number of inland craft visiting this port in the aljove year was probably not less than 100,000, and there is a steady .increase both in number and size of boats. But, favorable as is Rotterdam's geographical position, its pros¬ perity is by no means due to that alone. DilUculties of the gravest nature h.ave presented themselves and liave been courageously met and successfully overcome. No labor has been too arduous, no sac¬ rifice too gre.at. Rotterdam, port and city, is in this respect, as in¬ deed is the very country itself of which it forms a part, one grand monument to human energy, skill and perseverance. Every house of the city, every wall of its extensive quays and docks, rests upon huge timbers, driven through half a hundred feet of oozing mire to find a solid foundation in the bed of sand left by the retreating sea ; and every stone and timber of the entire structure has been brought from foreign lands. The introduction of steam as the propelling power in navigation. 278 DOCKS AXD TERMINAL FACILITIES. with the consequent increase in size and draught of vessels, lias during tlie latter half of the present century caused the decline of many flourishing sea-ports, and built up others which, either by reason of their natural advantflge or the enterprise of their citizens, have been enabled to offer to these modern ocean monsters an easier approach and a safer liaven of rest. The creation of a new water¬ way from Rotterdam to the sea is the great enterprise to which the recent expansion and present flourishing growth of this sea-port is immediately attributable. In 1880 the depth of the waterway was still only 4G decimetres, or a trifle over 15 feet at high water. Since that time the work has been so vigorously pushed that in 1893 the depth has been more than doubled. The average difference between high and low water at the hook of Holland, where the new waterway pierces the dunes and opens into the sea, is about 5.J feet. At Rotterdam, 16 to 18 miles up the stream, the average difference is about 4 feet, though often much greater. The results of the deepening of the waterwaj' have been brilliant. The tonnage of maritime shipping has doubled within the last ten years and the canal tonnage has increased in very nearly the same ratio, reaching, in 1894, 9,210,850 cubic metres. That this immense increase of traffic has necessitated extensive and expensive enlargements and improvements of harbor facilities need hardly be stated. Happily, the phj'sical features of the port of Rotterdam are such as to admit of practically unlimited expansion provided the money and energy be found to carry on the work ; and hitherto no effort has been spared to meet the requirements of increas¬ ing commerce. The citizens of Rotterdam seem fullj' alive to the importance of this work, and expend annually vast sums of money in dredging rivers, excavating harbors, building quays and equipping them with the most approved modern appliances. The total length of stone and brick built quays now finished is something over 14 English miles, and several are in process of con¬ struction. The excavation of a new harbor or basin has recentlj^ been begun, which when finished will be 2 kilometres, or LJ- miles, long, 320 metres, or 1,050 feet, wide, giving 138 acres of new water area and about 3 miles of additional quayage. The completion of this harbor involves the removal of some 6,000,000 cubic yards of earth. In addition to the berthing places along the quays, twenty-six mooring buoys have been placed along the middle channel of the Maas. These moorings are preferred by vessels carrying transit goods, as a vessel so berthed can discharge into two lighters or river boats simultaneously. DOCKS AXD TEKMINAL FACILITIES. 279 The quays are well provided with the necessary apparatus for handling merchandise. Cranes, fixed and movable, and operated by hand, by steam, bj' hydraulic pressure or by electricity, can be hired at moderate prices. Tliere are in all about seventy-five of these hoisting macliines, varying in lifting power from to 60 tons. One of the most powerful and expeditious lifting mechanisms of its kind is, perhaps, the coal hoist built by the city in 1886, by which a railway car loaded with coal is raised to an elevation of 30 feet and then tipped so as to discharge its contents along an inclined plane directl.y into the bunkers of the vessel. Twenty car-loads or 200 tons of coal can thus be handled in one hour, at a charge of 1 cents per ton. Another coal hoist of the same capacity is in process of construction. The city has three floating docks, dry docks. The largest is 335 feet in length, and has a lifting power of 17 tons per running foot; the other tvvo docks have a length of 275 and 146 feet respectively, and a lifting power of 14 tons per foot. All the docks are 84 feet wide, and admit of different combinations. There are also other and smaller floating docks of private ownership and a large number of ship-building yards and fitting and repairing shops in and near Rotterdam. The largest of these establishments is that of the Netherlands Steamship Company of Feyenoord. With the exception of the east quay of the Spoorweg Haven, which is owned by the State Railway, and the ship-building yards and wharves, all qua3's, wharves and docks are owned and controlled by the municipality of Rotterdam. The city has from time to time, as its limits have been extended, acquired by purchase the river front¬ age and other ground necessary for the extension of its harbor facilities. The necessary funds for the purchase of grounds, as well as for the extension and maintenance of its public works, the city has secured by the issue of bonds bearing a low rate of interest. The terms of these bonds are such as to permit a certain number or amount of them to be annually drawn by lot for redemption. The interest thus saved is added to the sum set aside out of the city rev¬ enues for the redemption of its bonds, and the amount of bonds an¬ nually redeemed is thus increased by so much from jmar to year. The bonds can also be reduced in toto, or converted into bonds bearing a lower rate of interest, at any time the city may feel able to do so. At the close of 1894 such redemption and conversion took place in connection with a new issue of bonds to the amount of 32,000,000 guilders ($13,200,000), which was readily taken at 98 per cent, of its face value. The harbors, docks, quays, quay space and warehouses are con- 280 DOCKS AND TER:\IINAL FACILITIES. trolled by the city council of Eotterdam, through committees ap¬ pointed from among its members. The entire harbor service is divided into four departments, the heads or chiefs of -which respec¬ tively are the director of public -v^'orks, the harbor master, the di¬ rector of the Ilaudelinrichtiugen (superiuteudent of quays and quay equipments, -warehouses, etc.), the dock master, or manager of the dry docks. The advantages of public ovrnership and control of docks, quays and -wharves are so many and so obvious that to undertake to point them out seems little better than -waste of words. A great and suc¬ cessful sea-port can be built up only by united effort. The docks, quays and necessary mechanical appliances are part and parcel of the port and harbor. Ho-w the harmony, order and method so essential to the development and successful administration of vast and varied interests can be secured unless the sea-port and its harbor service in their entirety be subjected to the direction of one central controlling power is, indeed, ditlicult to understand. The harbor charges at Rotterdam are very moderate, considerably less it is said than those exacted b}' neighboring sea-ports. No land¬ ing charges are made. Vessels retaining fixed berths along the quaj's, as is the case with ships of regular lines, and inland craft coining to the weekly markets, pay, in addition to the tonnage charges, what are called cpiay dues. The oiien quay space may be used for the temporary deposit of goods. If the goods remain more than two days, a charge of 4 cents per day is made for every 25 square metres, or less, occupied. In the public warehouses the charge is according to tlie space occu¬ pied. The rate is 81.20 per every 100 square metres or less for the first three days or less, and 40 cents for each succeeding day. Quay space and warehouse room can also be rented for longer periods. Several of the more important steamship companies have built their own warehouses upon sites rented for a term of years. The average yearly rental is about 30 cents per square metre, and in addition to this the regular (pi-ay dues of 810 per running metro of quay occupied for permanent moorings. The use of the floating docks is subject to special charges, called "dokgeld." The port also derives a revenue from the letting of various kinds of small plant and apparatus necessary for the loading, unloading and general liandling of merchandise. The port has a plentiful supply of lighters of all descriptions, but, as their ownership and control are private, no fixed rates for lighter¬ age can be given. docks axd TER:\IIXAL facilities. 281 Pilotage withiu the port is controlled by the city, and is optional. Sea and river pilotage is under the exclusive management of the State. So many factors enter into the proper computation of pilot¬ age rates charged that a full statement of them would be too lengthy and complicated for this report. The railway facilities enjoyed by Rotterdam are fairly satisfactory. It is connected, directly or indirectly, with the principal railway sys¬ tems of Europe. The arrangement by which the principal quays, harbors and warehouses are directly connected with the main line of the State Railway must be pronounced very satisfactory. According to an agreement entered into by the city and the above railway com¬ pany in 1889, the city builds and maintains tracks along all its quays and harbors on the left side of the river, and the company obliges itself to run its cars along these tracks and to admit to them the cars of other railway companies to all points within a certain described limit, and to receive and deliver goods at these points at the rates charged for goods received or delivered at the principal station in Rotterdam. This arrangement leaves no room for local railwaj's, and secures direct trans-shipment of goods without additional ex¬ pense to the shippers. The goods shipped to and from Rotterdam are so varied in kind that it is difflcult to fix the chief staple of traffic. Among thé lead¬ ing articles of import and export are oils of all kinds, cereals, tobacco, coffee, sugar, spices, liquors, coal, ores, metals, stone, cement, hides, fish and manufactures of different descriptions. In conclusion, 1 beg to acknowledge my indebtedness to Mr. G. J. de Jough, director of public works of Rotterdam, for much valu¬ able information courteously furnished me during the preparation of the aliovc report. U. S. CON'SULATE, llOTTEKDAM, t'el). 2S, 1896. SOUTHAMPTON" (England). [From the report of IIexry "W. Maktix, Consular Clerk.] The harbor of Southampton, a broad estuary formed by the con¬ fluence of the Itcheu and Test rivers, which convert the site upon which the city is built into a sort of peninsula, is, without doubt, one of the finest in the world. At the junction of these two rivers begins what is called the Southampton ITater, a noble expanse of 2eS2 DOCKS AND TEEMIXAL FACILITIES. sea, five miles in length, over half a mile in width, and of suflicient depth for vessels of the greatest tonnage. When the dredgers now at work shall have completed their task, this magnificent approach to the docks will have a depth of 30 feet at low water of ordinary spring tides. To the left, on entering Southampton "Water, is Calshot Castle, a coast guard and customs station, which marks the division of South¬ ampton harbor from the Solent, the stretch of water between the Isle of "Wight and Southampton "Water, and the beginning of the juris¬ diction of the Harbor Board. Once beyond Calshot Castle, safe and excellent anchorage is found in abundance. The Harbor Board maintains two lightships: one, the "Itchen" light, at the mouth of the river Itchen, and near the southern extrem¬ ity of the new dock works; the other, the "Spit" light, just outside of Calshot Castle, and marking the deep-water entrance to the South¬ ampton "Water. The buoys are in accordance with the uniform sys¬ tem of buoyage, and have recently been supplemented bj' four gas buoys. Three of these are put down by the Trinity House, in the Solent, to designate the approach to the port from the westward, and the other by the Harbor Board in Southampton AVater. All four are lighted and maintained by the Harbor Board, the owners of the docks contributing largely towards the expense. The construction of the first Southampton docks was begun in October, 1838, by the Southampton Dock Company, which had a capital of 81,855,500, afterwards increased by half. An act for the construction of the docks was obtained by the coinpauj' in 1836. This was two years after the act had been obtained for the con- st«ruction of the Loudon & Southampton RaiUvay, and the two un¬ dertakings, so dependent on each other, were carried out almost simultaneously, the railway being opened throughout in 1840, and the 16 acres of tidal or open docks completed and opened in August, 1843. The first year the docks yielded a revenue of $19,530. The inner or close dock was not opened until 1851. This dock is the only one possessing a pair of gates. It is 10 acres in extent, and has a depth of 25 to 28 feet of water, the depth in the open dock varying from 18 feet at low water to 31 feet at high water, or ordinary spring tides. From 1851 to 1876 the docks seem to have passed through a period of stagnation, as no further additions were made during that time. In 1876 the Extension quay, on the river Itchen, 1,720 feet in length, with a minimum depth of 20 feet at low water, was completed. DOCKS AXD TERMINAL FACILITIES. 283 This quay is principally used by the Cape and South African mail and other steamers of the Union Steamship Companj'. The docks are shut off from the city by solid brick -n-alls, broken here and there by gates and doors, each efliciently guarded to prevent the ingress of idlers and the egress of dutiable goods not bearing the official poster rvhich shows that they have passed the customs. All these gates and doors open on Canute Koad, named after the re¬ nowned Dane. On entering the dock j'ards, one is struck with the network of rails running in divers directions. All of these rails, or almost all, con¬ nect with the London & South-western Railway station, just opposite the gates of the dock yards, on the other side of the Canute Road, and enable the trains to be taken right alongside the quays of the adjacent docks, thus permitting both passengers and goods to be trans-shipped with a rapiditj' and facility common to no other port in the kingdom, and to very few in existence. Working eastwards, with a slight bearing to the north, the first dock encountered is the open dock, with an entrance 150 feet wide, hereinbefore described. Next in order of importance is the Empress dock, opened in 1890. This superb dock presents a great parallelo¬ gram of smooth water, bordered with the massive and imperishable masonry of the quays, which are so enormous that the great liners moored alongside appear small and almost insignificant in compari¬ son. Since its completion this dock has been the pride of the South¬ ampton people, for it has hitherto been unique among the docks of the world in certain striking characteristics. In no other port of Great Rritain is there a similar dock into which the largest vessels afioat can steam and take up their berths, load, unload and depart, irrespective of the state of the tide, and at any time of the day and night. It is 18¿^ acres in extent, has four quays of 850 feet each in length, and an entrance 175 feet wide, with 26 feet minimum depth of water alongside at low water. It is in this great dock that the "Paris" and "New York" and other large steamers, such as the "Nile" and "Danube" of the Royal Mail Steam Packet Company, the "Scott" of the Union Steamship Company, and latterly the "St. Louis" of the American Line, take their station. The advent of the "Paris" and "New York" and other famous vessels of the one time Inman Steamship Company of Liverpool to Southampton followed closely the beginning of a new epoch in the history of the South¬ ampton docks, and that of Southampton as a port. In November, 1892, the Southampton Docks Company, who laid the foundation-stone in 1838, went out of existence, and the docks ¿84 DOCKS AXD TEKMIXAL FACILITIES. became the property of the London & South-western Railway Com¬ pany. The sum paid therefor was 86,618,440. This acquisition marks the beginning of the new era of prosperity in the commercial history of Southampton. Possessed of enormous wealth, this great company immediately commenced a series of gigantic undertakiijgs, which have entirely transformed the harbor and docks and raised Southampton to the proud position of being the finest and best- equipped port in Great Britain. Its great natural advantages have been developed and enhanced by modern improvements and inven¬ tions, new steamship companies have been attracted to the port, and the city, which some four years ago was comparatively unknown, is now fairly entered upon the great destiny to which her happy situa¬ tion, natural wealth and delightful climate justly entitle her. The following is a description of the new quays : the guide stage, reaching from the south dock head of Empress dock, about 300 feet in length, composed of piles and timber framing and deck, and filled up to low-water level with concrete ; the east or Itclien quay, composed chiefly of timber and concrete structure, similar to the pre¬ ceding, 1,600 feet in length; the south quay, 430 feet long, now in process of construction; the south-west or Test quay, 1,.500 feet in length, also in process of construction ; in all, 3,830 linear feet of quay, with 28 feet of water alongside at low rvater, and necessi¬ tating the dredging of upwards of 1,.500,000 to 2,000,000 cubic yards of material. This depth can at any time be increased to 30 feet, the foundations being put in suiliciently deep to admit of dredg¬ ing to that extent. About 1,150 feet of the Test quay is enclosed by a chalk bank, and the wall will be put in in the dry, as in the case of the graving dock. Another method of construction will be necessary for the outer and deeper portion, and the matter is now un¬ der consideration. The following items are of interest, as showing the number, approximately, of men, machines and material required in the execution of the works: 1,100 men; 2,000,000 bricks; 85 locomotives (cranes, etc., 7 locomotives) ; 10,000 loads of timber; 40,000 tons of cement; 3 dredges; 26 barges and hoppers; 5 tugs and launches, besides immense quantities of granite, chalk, dirt and filling. The ponderous masonry of these new works, as well as of the old, and the permanent manner in which they are constructed, as if in¬ tended to last for scores of centuries, which, indeed, is characteris¬ tic of all public works in England, is well calculated to impress a foreigner. Among other improvements and accommodations on the dock estates are a large warehouse on the north side of the Close dock, only just completed, and designed for the accommodation of DOCKS AXD TEEMINAL FACILITIES. 285 grain, flour and general merchandise, including bacon, cheese, etc. ; also champagne, which is received in considerable quantities from France, via Havre, and stored in specially constructed vaults. This building is 300 feet in length and 100 feet in breadth, and consists of 8 floors and a basement. Like other warehouses adjacent, it is fitted up with elevators, and conveying machinery of modern design, capable of dealing with 100 tons of grain per hour, either from ship, lighter or car. About 100,000 square feet of shedding has been provided on the south side of the same dock for storage of wood goods, in order that such merchandise may no longer be exposed in the open air to the deteriorating effects of weather. A coal bargo dock has been constructed on the Itchen for the purpose of discharg¬ ing coal from the colliers into lighters. Ill the close and open docks there are three sets of sheer legs, vary¬ ing in power from 20 to 100 tons, and a large number of hydraulic cranes of various powers. These latter are of recent construction, and form part of a complete system of hydraulic power worked from the central station near the graving docks. The whole of the com¬ pany's premises are lighted by electricity from the plant situated in a central station adjoining the hydraulic engine house. All the quays in the old and new docks and recent extensions are supplied with spacious transit sheds and warehouses, with the railways running alongside and under cover, so that the operations of loading and unloading import and export cargoes may be carried on with the utmost convenience and despatch without regard to the state of the weather. Ice-cold storage room is provided underground beneath some of these sheds, where thousands of quarters of American meat can be stored, awaiting the time to ship them inland. It is, however, in her superiority as a passenger port that South¬ ampton takes the most pride. The passenger steps from the steamer into a shed, where a special train awaits the arrival of all the liners, has his baggage examined by the attendant oflicers of customs, and one hour aud forty minutes later he is in Loudon, 78 miles from Southampton by rail and 74.J by road. There are also close con¬ nections with the fast mail steamers which ply between Southampton and Havre. The affairs of the harbor are administered by the Harbor Board (or commissioners), composed of the members of the corporation of Southampton and ten specific commissioners, who are practically life members of the Board. The mayor, who is also admiral of the port, is chairman of the Board, and is assisted by a virtually permanent deputy chairman, re-elected annually. The town quay and the royal pier belong to the Harbor Board, and 286 DOCKS AXD TERMINAL FACILITIES. are under the direct management of that bod}'. The towu quay, an extensive structure of wood, projecting into the river Test from a point some distance above the uew dock works, has a quay frontage of 3,500 feet, with convenient,berthing and every accommodation for the working and trans-shipment of cargoes of small steamers. The royal pier, in close proximity to the town quay, and which has lately been reconstructed, also projects in a slightly curved line into the river Test. It is 1,000 feet in length and 36 feet in breadth, and is used for excursion and steamboat traffic, besides affording a broad expanse of promenade flooring. A spacious pavilion and con¬ cert hall have just been completed on the pier, as also a branch club house of the Royal Southampton Yacht Club. It is abundantly sup¬ plied with comfortable benches, and provided with every convenience for the purposes of recreation. In the river Test, to the right of the pier, excellent anchorage is found for small yachts, as also in the river Itchen, wliere numerous private dock yards and j'acht-building works are situated. I am indebted to Mr. John Dixon, dock and marine superintendent of the London & South-western Railway, Southampton, for much valuable information in the preparation of this report. SorXHAVPTüX, July tS, 1895. STOCKHOLM (Sweden). [The report of Tko.vas B. O'Xeil, L". S. Consul.] Ansicer to Question Yb. 1 : As the Swedish metropolis is situated midway on the east co.ast, where the Malaren Lake flows into the Baltic, and where numerous lines of communication b}' laud and by sea meet, the town of Stock- liolm may be considered the centre of commerce and navigation of these parts. Ansirer to Question Xo. 2 : The port, which is excellent and entirely natural, is large enough to hold all shiiis destined for these parts, a circumstance which, in connection with its central position, has helped to develop it. Answer to Questions Xos. 3 and 4: The port of Stockholm has no docks. The wharves and quays belong to the town itself, and they are under the control of the DOCKS AND TEKMINAL FACILITIES. 287 harbor master. They have been enlarged in proportion as naviga¬ tion and commerce have increased. Answer to Question No. 5 : All wharves and quays within the central part belong to the town, but along the more distant parts of the shore some private quays may be found. There is no mode of participation whatever. Answer to Question No. 6 : The ships are placed along the quays according to the orders of the harbor master, who also decides regarding the piling of goods on the quays. The harbor regulations contain the necessary instructions. Answer to Question No. 7: The town has by degrees acquired possession of the most central shores for the building of quays and roads. Government has also given up parcels of land, when this has been necessary for arranging and enlarging the port. Answer to Question No. 8 : As there are no docks here, no answer can be given to this question. Answer to Question No. 9 : In most cases the community has not paid more than the current prices, and the necessary funds have been secured at about five per cent. Answer to Question No. 10: The principal income of the harbor is derived from charges on the cargoes, and the owners of the goods pay the landing charges. Answer to Question No. 11 : Yes. Answer to Question No. 12: Connecting railroads exist, and belong to the State. 288 DOCKS AND TERMINAL FACILITIES. Answer to Question No. 13 : The development of the town must be chiefly attributed to the regular steamship communications. Answer to Question No. 14: There are several transport and tug boat companies which by means of towed lighters carry goods to and from most places along the shores of the lake and the sea. Answer to Question No. 15 : As the metropolis of Sweden, Stockholm has certain advantages over other Swedish towns. The only city that can compete with Stockholm from a mercantile point of view is Gothenburg, with its ex¬ cellent position at the outlet of the Gotaelf into the Kattegat. Answer to Question No. 16 : In this country the municipalities are responsible for all loans raised for the purpose of building ports and quays. Answer to Question No. 17 : Import : colonial and manufactured goods, petrol, coals, wheat, rye, etc. ; export : iron, wood, ore, oats, matches, tar, etc. U. S. Consulate, Stockholm, Aug. 27, 1895. SYDKEY (New South Wales, Australia). [From the report of Geohob W. Bell, U. S. Consul.] Naturally Port Jackson, the harbor on which Sydney is situated, is the best harbor on the globe. It is laud-locked, perfectly protected from winds by considerable elevations in every direction and from tides by various capes, islands and curves in the land formation. There are said to bo 1,200 miles of shore line or water front within 10 miles of the general post-oflice ; and while there is no place in the harbor too deep for convenient anchorage, there is suflicieut depth at almost any point for deep-sea vessels to lie alongside the shore. Art could not have formed a better entrance, and the interior is capacious enough to hold the fleets of the world, though no ship inside the heads DOCKS AND TEEMINAL FACILITIES. 289 can get one mile from land. Sydney is the metropolis of Australia, the natural advaut.ages of the harbor being one desideratum. But it is also the capital and chief distributing point of the richest and most populous of the Australian colonies, and the terminus of a railway system of 2,500 miles, reaching out in all directions and tapping the better portions of a country embracing 310,000 square miles. I regard the success of the past as largely due to the location and nat¬ ural merits of the harbor, though it is managed and controlled with about average skill and ability. To me the fourth question is meaningless, as I cannot understand how the " ownership " could affect the docks and wharves unless it affected the management. These general remarks cover the first four questions. Ansioer to Question No. 5: A portion of the wharves belongs to the government and a portion is in private hands. As facilities for storing and handling goods at the different wharves are about the same, there is no competition. A portion of the government wharves is leased on short terms, one to the Peninsula & Oriental Steamship Company, one to the Orient Steamship Company, one to the Messaquries Maritime Company, one to the Norddeutscher Lloyd Steamship Company and another to tlie German-Australian Steamship Company. The government wharves are managed by a manager, appointed by and acting under the colonial treasurer's department, while the private wharves are man¬ aged by a trust, called the Wharf Association. Ansiver to Question No. 6: Partly answered in the fifth question. The rules are established by the treasury department for government wharves ; and under parliamentary law or regulations the association establish the rules of the several private wharves. Answer to Question No. 7 : I think this has largely been answered by questions 5 and 6. The government disposed of a portion of the shore line, but the retention of so large a portion secures a uniformity of privileges, charges and management greatly to the advantage of commerce. The govern¬ ment fixes a maximum rate of wliarfage, and, having equal facilities, of course indirectly controls charges. The mixed ownership is re¬ garded as beneficial. 290 DOCKS AND TERMINAL FACILITIES. Ansiver to Question No. 8: Public ownership secures uniformity, but often private manage¬ ment is a convenience to commercial men, as suitable arrangements for special cases can be more readily made. It is not easy to secure a deviation from " departmental " regulations. Ansiuer to Question No. 9 ; In some cases wharves on shore line have been " resumed " by the government, usually by compromise or agreed price, the " needed funds " being especially appropriated by Parliament. Aiiswe?- to Question No. 10: Chiefly from cargoes. Ship charges for berthing are very light. Answer to Question No. 11 : Only to a limited extent. The roads belong to government, and connect with the government wharves at Darling harbor and Pyr¬ mont. Ansiver to Question No. 12: Only as in No. 11. The rates differ on distance and class, and are fixed by a railway commission with absolute authority. It would be hard to define the basis of charges. Ansiver to Question No. 13 : I would say very largely, as the railways centre here, and bring heavy products for export and help to distribute the imports. Ansiver to Question No. 14 : Very little lightering is done except for private convenience, as ships can go almost to any of the wharves, there being plenty of water. Answer to Question No. 15: No special facilities exist. The geographical position and splendid water frontages make this a grand distributing centre. DOCKS AND TEEMINAL FACILITIES. 291 Answer to Question No. 16 : Large sums have been spent at Newcastle for coal staiths, etc., to great advantage, and it is claimed at an actual profit. AtWollon- gong a harbor trust was formed three or four years ago to improve the harbor, so called, but already trouble has arisen, and the money expended so far appears to have been wasted. Answer to Question No. 17 : General merchandise inwards, and wool, tallow, hides, skins, pre¬ served and frozen meats, minerals, etc., outwards. So far but little export of cereals has taken place. Answer to Question No. 18 : There was a movement made some years back by the mercantile community in favor of the establishment of a harbor trust. The movement, although directly unsuccessful, caused both private indi¬ viduals and the government to bring the wharfage accommodation then existing into something better, both as regards jetties and cov¬ ered sheds thereon. In 1893 the government proposed the forma¬ tion of harbor trust for Sydney and Newcastle, but on such lines as did not meet the approval of the mercantile community. Political changes have since caused the project to be abandoned. In conclusion, it may be well to say that in New South "Wales most of the public utilities, such as railways, telegraphs, telephones, wharves, sewers and also over three-fourths of the lands, belong to and are controlled by the government, so dedications, resumptions and funds for the same are provided for by acts of Parliament. U. S. Consulate, Sydney, Sept. 10, 1895. Appendix IV. ACT AND RESOLVE. ACT AXD RESOLVE. AN ACT To authorize the Purchase, Taking and Improvement of Cer¬ tain Lands for the Purpose of securing Public Ownership and Control of Certain Parts of the Foreshore of Boston Harbor. 1 Section 1. For the purpose of securing public owner- 2 ship and control of certain parcels of the foreshore of 3 Boston harbor, the board of harbor and land commis- 4 sioners are hereby authorized to take in the name of 5 the Commonwealth by purchase or otherwise in fee from 6 time to time within two years from the date of the 7 enactment hereof any and every of the parcels, strips 8 or belts of lands or flats bounding on the United States 9 pier-head line in old harbor and Dorchester bay south 10 of the strandway, as laid out in the Boston park system 11 on the south side of South Boston and north of the 12 lowest bridge on Neponsot river, and lying between said 13 pier-head line and a line drawn parallel to and distant 14 shoreward seven hundred feet therefrom ; said parcels to 15 be of such shapes and dimensions within the lines afore- 16 said as said board may determine ; also all and singular 17 the parcel, strip or belt of flats situate at East Boston 18 on the easterly side thereof, adjacent to Wood Island 19 park and the city of Boston flats, bounding on the 20 United States pier-head line from its intersection of the 21 line of Sumner street extended, thence to Breed island, 22 and a line drawn parallel thereto and distant shoreward 296 DOCKS AND TERMINAL FACILITIES. 23 fifteen hundred feet therefrom, saving and excepting the 24 fiats of the city of Boston. All the parcels herein author- 25 ized to he taken must be taken within two years of the 26 passage hereof. 1 Sect. 2. Said board, in order to make any taking by 2 right of eminent domain, shall cause to be recorded in the 3 registry of deeds for the county of Suffolk a description 4 of the lands, easements, estates or rights to be taken, as 5 certain as is required in a common conveyance of land, 6 together with a plan and a statement that the same are 7 taken under the authority of this act, which description 8 and statement shall be signed by said board, and the lands, 9 easements, estates or rights described in said description 10 shall upon such recording be taken for, and shall vest 11 in, the Commonwealth. 1 Sect. 3. Said board may agree with any person as 2 to the amount to be paid as damages sustained by him 3 for any property taken or injured by said board under 4 authority of this act or any act in amendment hereof; 5 and if such person cannot agree with said board as to 6 the damages so sustained, such damages may be deter- 7 mined by a jury in the superior court for the county of 8 Suffolk, on petition therefor of said board or of said per- 9 son against said Commonwealth, filed in the clerk's of- 10 fice of said court within one year arter such taking or 11 injury to property as aforesaid; and judgment shall be 12 entered upon the determination of said jury, and costs 13 shall be taxed and execution issued in favor of the pre- 14 vailing party as in civil cases. 1 Sect. 4. The treasurer of the Commonwealth shall 2 from time to time on the request of said board issue DOCKS AND TERMINAL FACILITIES. 297 3 aud sell at publie or private sale, bonds, registered or 4 with interest coupon attached, as he may deem best, in 5 the name and behalf of said Commonwealth, to an 6 amount not exceeding one million of dollars. Said 7 bonds shall be designated on their face "Harbor Im- 8 provement Loan," and shall be for a term of forty 9 years, at a rate of interest not exceeding three per cent. 10 The proceeds of said bonds shall be used to meet all 11 damages, costs and expenses incurred in carrying out 12 the provisions of this act by said board. 1 Sect. 5. In addition to the powers heretofore granted, 2 said board may make contracts for the filling, improve- 3 ment and use of any or all of said parcels ; may dredge 4 channels thereto, and elsewhere in the waters of the port 5 as required ; regulate the taking of material from the 6 harbor, and fix lines thereon for filling flats and excavat- 7 ing docks ; shall have charge of and administer all the 8 public whaiwes, docks atid foreshore owned by the Com- 9 monwealth, and may lease the same in parcels, improved 10 or unimproved, from time to time for periods not exceed- 11 ing fifteen years ; and also may hear and investigate 12 complaints or overcharge for wharf or dock accommoda- 13 tion, or for discriminations with reference to charges of 14 anj' kind in relation thereto, and make report thereon 15 to the legislature. All takings of land and leases exe- 16 cuted under this act shall be subject to the ai)})roval of 17 the governor and council. 1 Sect. 6. This act shall take ell'ect upon its passage. 298 DOCKS AKD TERMINAL FACILITIES. RESOLVE Relating to the Books, Maps, Plans, Reports and Statistics collected by the State Board on Docks and Terminal Facilities. 1 Resolved, That all the books, maps, plans, reports * 2 and statistics relating to the commerce and harbor im- 3 provements in the sea-ports of the world, collected by 4 the state board on docks and terminal facilities, be 5 committed to the custody of the harbor and land 6 commission.