Extracts from the Report of a Committee of the House of Commons.

Your committee have directed their attention, in the first instance, to the expenditure for the navy, and they believe they shall best consult the convenience of the house, and facilitate the progress of public business, if, without waiting until other important inquiries shall have been concluded, they proceed at once to report the information which they have collected, and the recommendations which they may have to offer, in reference to this branch of the public service.

In submitting their first report to the house, your committee desire also to explain the course which they have deemed it advisable to pursue. It is obvious that the expenditure for the effective services of the navy, army, and ordnance, must in a great measure depend upon the amount of force which the advisers of the Crown may consider necessary. A satisfactory decision upon this question can only be formed after a careful and deliberate survey of the position of the country in regard to its internal resources, its external interests, the state of its foreign relations, its political obligations, and the maintenance and fulfilment of all the various rights and duties which belong to the extensive and long established dominion of the British empire.

Your committee believe that it was not the intention of the house to refer these matters to their consideration, and they have accordingly abstained from taking any evidence or offering any opinion upon systems of State policy, which Parliament can only sanction on the immediate responsibility of the advisers of the Crown, and in regard to which a committee, composed of members purposely selected on account of their different views, can hardly be expected to agree.

The financial committee of 1828 declared it as their opinion that the establishments of this country should be regulated, not with reference to the unusual circumstances of the late war, or to the probability of being again called upon to make a similar exertion, but rather with reference to the policy of depending mainly on our navy for protection against foreign invasion, and for the means of attacking our enemies. This policy will be admitted to be the must congenial to the habits and feelings of our countrymen, who have for a length of time been accustomed to look upon our naval power as the right arm of our strength, and the main support of our national greatness.

The general favour and partiality with which the navy has been regarded, and the willingness with which the country has contributed to maintain its superiority cannot, however, be expected to render the House of Commons less vigilant in controlling this branch of the expenditure ; otherwise it may happen that the popularity of this gallant service may be endangered, and the feelings hitherto displayed towards it may be changed. Any such consequence would have a most injurious effect upon the interests of the service, which it has ever been the earnest desire of Parliament to maintain in efficiency.

A review of the navy estimates for many years past exhibits a large and still increasing charge.

The report then contains a long return in a tabular form of the sums voted each year from 1828 to 1848 inclusive, for the naval service, distinguishing effective from ineffective services, and also showing the amount expended in each financial year for naval services. From this paper it appears that the sum voted for the naval services in 1828 was £6,533,866, while the amount expended was £5,919,145 13s. 10d. There was a gradual diminution in the amount of the sum voted, as well as in the expenditure, to 1835-36, when the sum voted for naval services was £4,434,783, while the amount expended was £4,271,898 10s. 4d. From that year until 1842-43, there was a gradual increase in the amount voted, as well as in the expenditure, for the naval estimates then voted amounted to £7,060,442, while the expenditure was £6,977,201 16s. 1d. In 1843-44, the amount was £6,579,960, and the amount expended was £6,453,449 9s. 10d. In 1844-45, the amount voted for naval services was £6,466,019 ; in 1845-46, £7,344,363 ; and in 1846-47, £6,590,256 ; in 1847-48, the amount voted was £7,737,198 ; and in the present year, 1848-49, it was £7,951,842.

The amount thus given shows not only the progressive growth of the estimates, but it also points out the years in which supplementary votes were required to cover an excess of expenditure. This is followed by a statement, showing the surpluses in the naval grants, or excesses of expenditure above those for each of the years given in the former return. From this paper it appears that in 1828 there was a surplus of the naval grants over the expenditure of £614,720, while in the three following years there was an excess of expenditure over the grants respectively, of £119,468 18s. 3d., £60,949, £54,973. Up to the year 1832 it was customary to defray the excesses out of the balance of naval moneys retained from year to year ; but after that time the unexpended surpluses remained in the Exchequer, and were appropriated as ways and means. In each year from 1832-33 to 1843-44 (excepting 1839-40, when there was an excess of expenditure to the amount of £34,439), there was a surplus of naval grants, varying from £230,842 in the first of these years, to £5,318 in 1838-39. In 1844-45 there was again an excess of expenditure to the amount of £44,420 ; in 1845-46 it was £185,280 ; and in 1846-47 it amounted to £245,410.

From this statement, then, it appears that in each of the years 1844-5, 1845-6, 1846-7, there has been an excess of expenditure ; and it has been admitted that when the accounts are closed for the year 1847-8, a further grant will be again required for a similar excess.

For the purpose of ascertaining how far it may be possible to check this increase of charge, it will be necessary to examine the estimates in detail ; and an adherence to the divisions of the expense, as they are at present arranged under distinct heads in the votes annually presented to Parliament, will be the most convenient form in which the investigation can be conducted.

The manner of voting the navy estimates has varied considerably at different periods.

During the close of the last and at the commencement of the present century, the votes for the navy were taken in the house without any printed estimates being delivered ; an account for the ordinaries or ordinary establishment of the navy was, during this period, annually presented, though not printed. In the year 1810, the estimates for the ordinaries of the navy were first printed. These estimates gave, however, no information respecting the whole expenditure fur the navy, since they only included the details of expenditure for £1,511,000 ; whereas the total amount voted in that session for the navy, was £18,975,120. The ordinary of the navy was voted in one sum, and the amount of nearly nineteen millions was taken in twelve votes. In the year 1819, the estimates containing the intended expenditure for the navy were first printed, and in the year 1821 the charges were subdivided, and exhibited in great detail the several sums required. From that period various revisions of the form of the estimates have taken place, until the year 1832, when the present mode of arranging the charges was established, and since that time very few alterations have been made in the form of the navy estimates.

In order to institute any correct comparison with the expenditure of former years, it appears to your committee that the most convenient course will be to limit their references to that period within which the estimates have been framed in the same manner, and this restriction will bring within the view of the house all the years in which the lowest estimates have been presented to Parliament. The estimates of 1833-34 were, at the time of their consideration, pronounced to be the lowest ever voted since the peace, and the charge for the navy was again further reduced in the estimates of succeeding sessions.

This is followed by a long and elaborate table, exhibiting the sums taken under each head of the estimates, from the year 1833 to the present time; and also a table showing the number of men, boys, and marines voted and borne from 1829 to 1847. The report then proceeds to state that:

Previously to voting the various sums of money required under the different heads of the estimates, it has long been the practice of the House of Commons to decide upon the number of men. This question is brought under its notice by some member of the Government, who announces the number which has been declared by her Majesty in Council to be necessary for the service of the year.

The number of men voted determines the amount of effective force for the ensuing year ; and therefore it might be supposed that this decision would in great measure regulate the whole annual expenditure for the navy. Such a conclusion would, however, be far from accurate, as may easily be proved by a comparison of the expenditure in different years. For instance. it may be observed that in each of the two successive years, 1841 and 1842, the number of men voted was 43,000, an amount equalling the number voted for the service of the present year ; yet, in the year 1841, the Whole sum expended for the navy was £6,731,502, while the sum asked for in the estimate of the present year is £7,951,842 ; showing, therefore, that with the same number of men there is an estimated increase in the charge of above £1,200,000. The year 1841 has not been selected as a year of remarkably low estimates, but merely for the purpose of showing that when the number of men has been fixed, there is still room for the application of a well-considered economy.

The number of seamen, including boys and marines, required this year for service afloat, is 35,000, in addition to which there are 8000 marines to be employed on shore. The somber of seamen, &c., actually serving on the 1st of march, 1848, including those ordered home, or paying off, was 39,000.

The number of ships and vessels of all classes in commission on the 1st of March was 235 ; but of these 25 are either ordered home or paying off, leaving 210 as the permanent number required for the service of the year at all stations, &c.

A long return is given of the number of her Majesty's ships and vessels on the different stations on the 1st of March in each year, from 1835 to 1848, both inclusive, showing their total complements of seamen, boys, and marines.

The report then states:

"In examining the amount of force at the several stations, it will be more convenient to reckon only that number of vessels which the Executive Government desire to retain throughout the year on each of the following stations :

There are seven foreign stations:- East Indies and China; Pacific or West Coast of America ; South-east Coast of America ; West Coast of Africa ; Cape of Good Hope ; North America and West Indies ; Mediterranean.

In addition to these, there is usually some force under the name of Home or Channel Fleet. In the present year it is called Squadron of Evolution.

East Indies and China

Seventeen vessels of all classes ; one receiving ship, complement 3268. Four of the above enumerated vessels are steamers.

This force has been distributed as follows:- Three or four vessels have been stationed at New Zealand. The recent hostilities in these islands rendered necessary the presence of ships of war ; and in fact New Zealand has been a great degree separated from the East India station. The commanding officer there has corresponded directly with the Admiralty, because the circuitous communications through the admiral is the East Indies were found to be exceedingly inconvenient. It is thought desirable that these ships should occasionally visit Australia and Van Diemen's Land.

In compliance with our treaty with China, four ships are stationed at the consular ports of that country ; besides which, a frigate and a Sloop with one or two steamers are kept in the vicinity of Hong Kong. Lord Auckland states it as his opinion that our interests in China demand the services of seven or eight ships.

Two ships are stationed at Bombay for service in the Persian Gulf or at Aden. One ship occasionally visits Ava and the Mion River, where the protection afforded by a ship of war is sometimes necessary.

The Admiral's ship moves about according as his presence may be required. Lord Auckland considers this amount of force at present necessary in the eastern seas for the security of British interests in that part of the world. The East India Company have also a considerable force, and their steamers have been found very efficient when co-operating with the royal navy. From a return lately made to an order of the house, it would appear that the East India Company have about twenty steamers fitted for the purposes of war.

Station of Pacific or West Coast of America.

Previous to the year 1838, the Pacific and the south-east coast of America formed together one station, with a force of about fifteen vessels. This station, since the year 1838 has been converted into two separate stations, and the force employed on them has been nearly doubled. The causes of this increase have been various. The question relating to the Oregon territory, difficulties upon the coast of Mexico, and protracted disputes in the Rio Plata, the large amount of French and of American force stationed in those seas, are all adduced as reasons which have successively prevented a reduction of the British force.

Lord Auckland states it as his opinion that the force in the Pacific must depend upon the relations that exist there. We have an extensive commerce in those parts; and while other powers maintain a large force there, a British fleet is said to he necessary to give countenance to our trade. So, again. in the Rio Plata a squadron has been kept there for some years, and a considerable expense incurred, with little advantage as yet in bringing matters to an amicable settlement. Such a result is considered by Lord Auckland most desirable for British commerce ; but, he adds, that all the endeavour hitherto made for this purpose have been unsuccessful.

The force on the eastern coast of South America was also intended to assist in the repression of the slave trade until the large part of the squadron was sent to the Rio Plata, on account of the operations carrying on there. It appears now, however, from the information of very competent authorities, as cited by Lord Auckland, that when these vessels can be spared from the River Plate it would be most unadvisable to employ them in cruising for slavers on the Brazilian coast. This subject has been referred to another committee, your, committee did not pursue the inquiry further ; but the opinions contained in the evidence of Lord Auckland deserve the serious attention of the house.

The West Coast of Africa and the Cafe of Good Hope.

These two stations were comprised in one until the year 1841.

The west coast of Africa has now 24 vessels, with a complement of 2470 men.

The Cape of Good Hope has nine vessels, with a complement of 1715 men.

In the year 1835 the whole force of these stations was 13 ships and 1065 men. There are now 33 ships and 4185 men.

The ships upon the west coast of Africa are maintained for the suppression of the slave trade, in accordance with treaties made with France and the United States. Some details, in reference to this subject, will be found in the evidence, but for the reason above state the investigation was not continued. The force at the Cape of Good Hope has been lately increased on account of the Kafir war ; the station has also been extended to include Mauritius and the Isle of Bourbon. These ships are, moreover, employed in repressing the slave-trade, which have of late years increased upon the eastern coast of Africa. Lord Auckland is of opinion that this force cannot be much reduced.

North America, and West Indies.

The force upon this station consists of ten vessels, with a complement of 1717 men. This is the only station where a reduction of force has occurred ; and here Lord Auckland considers the force is too low, and should, if possible, be increased. The present force, he says, is very much straitened in fulfilling the objects for which it is placed there ; the protection of the fisheries m the north, visiting the West India islands, and watching British interests from the Caracas to the shores of Nova Scotia and Newfoundland, constitute a portion of the duties required by the admiral of this station.

Mediterranean.

In the Mediterranean there are 25 ships, with a complement of 6973 men.

This force is maintained in accordance with the policy of the present Government, and Lord Auckland declares it as his opinion, that, while we maintain this amount of naval force in time of peace, it may be more conveniently stationed in the Mediterranean than elsewhere,

In addition to the ships employed on the above seven stations, there is a squadron of evolution consisting of three sail of the line and other vessels. which may otherwise be called the Home or Channel Fleet. This force is also said to be indispensable.

Many other vessels are included in the number of ships in commission, but except those which are sent on particular service, and the ships stationed for the protection of our ports at home, the rest consist of packets, surveying vessels, &c., which will be considered under votes especially applicable to these services.

The distribution of the force must be regulated by considerations of general policy, into which your committee do not propose to enter. Some of the reasons for the maintenance of a fleet on these different stations may be seen in the evidence given by Lord Auckland. It does appear, however, from a cursory view of these statements, that whatever cause may have led to increase of force on any particular station, when once the force has been augmented, there is too frequently some unfortunate hindrance to its subsequent reduction. Thus it is seen that the disturbances in New Zealand, piracy in the Malayan Straits, hostilities in Caffreland, all lead to an increase of naval farce on the stations connected with these localities ; but yet when the enemy has been defeated and hostilities at an end, other duties are found for the ships, and the force which was required for the contingency of a war remains as the permanent establishment in time of peace. There are occasions when such a demonstration of naval power may be a wise economy, but it is to be feared that officers commanding stations may be reluctant to part with a force once placed at their disposal ; and it requires therefore, a just discrimination and a firm exercise of authority on the part of the Home Government, to regulate the distribution of the fleet in such a manner as shall secure the interests of our commerce and protect the distant dominions of the Crown, without imposing an unnecessary burden on the finances of this country.

In this general view of the distribution of the naval force, your committee have not entered into any details respecting the class of vessels employed on these different stations.

The ships and vessels in commission on the 1st January, 1848, were:-

1st rates, 5 ;
2nd rates, 11 ;
3rd rates, 1 ;
4th rates, 7 :
5th rates, 10 ;
6th rates, 15 ;
sloops and brigs, 49 ;
packets, 9 ;
surveying, troop, store, and hospital ships, 20 ;
cutters, schooners, yachts, and tenders, 24 ;
steam-vessels, 78 ;
mail packets, 22 ;
steam guard ships, 1 :
number in commission on 1st January, 252.

The established complements of her Majesty's ships have of late years been considerably increased consequently the charge for a ship of the same rate is necessarily greater than it was at the former period.

The following returns shows the complements of 1837 and 1847 :

A Return showing the established complements of Her Majesty's ships and vessels in 1837, compared with those of 1847.

Complements, 1837.

Complements, 1827.

(Signed)" J. T. Briggs
" Accountant-General.
" Admiralty Office, May 28,1848."

SG & SGTL Vol. 6 ; p 118-120 - 1849

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