Joseph Tatlow - Fifty Years of Railway Life in England, Scotland and Ireland

J >> Joseph Tatlow >> Fifty Years of Railway Life in England, Scotland and Ireland

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In Australia and New Zealand, more than once, the various governments
provided us with special cars or special trains to visit their remoter
districts with the greatest possible comfort. The same was the case in
Newfoundland, whilst the Canadian Government lent to us a steamer--the
_Earl Grey_--for our journey from Rimouski to Newfoundland, which since
has done good service for the Allied cause in the war.

In Canada we travelled from Montreal to Prince Rupert, some 3,000 miles,
in a handsome and most commodious car kindly lent to us by Sir Daniel
Mann, one of the founders of the Canadian Northern Railway. It, too, was
our home and hotel during the ten days which that journey occupied. The
longest passenger vehicle I had ever seen, it had ample kitchen, dining
room, sitting room, sleeping and "observation" accommodation for us all,
with an excellent bathroom and the luxury of a shower bath.

On all our journeys to and from the Dominions, and in all our expeditions
by sea or by land, my wife accompanied me. She was an excellent
traveller. There is considerable difference in our years; but, as
Dickens has said: "There can be no disparity in marriage save
unsuitability of mind and purpose." The only lady who accompanied the
Commission everywhere, she was sometimes called "The Lady Commissioner."
One must not praise one's own, but this much I may say: Her Irish wit and
bright unselfish ways made her, everywhere and always, a welcome addition
to the Commission party.

After November, 1916, we held no more public sittings, took no further
evidence, but sat down at Spencer House (one of the many stately London
residences lent by their owners to the Government during the war) and
there, in its ballroom, industriously worked out our Final Report. This,
of course, reviewed the whole subject of our inquiry and embodied our
final conclusions and recommendations. To the credit of the Commission
be it said, these conclusions and recommendations were entirely
unanimous, as also were those in each of our Interim Reports, published
in connection with the Dominions separately.

In this Final Report the subject of railways was not included. Railways
of course formed part of our inquiry, but they were dealt with in our
Interim Reports.

To a large extent railways were more a matter of domestic than of
Imperial concern, but as the development of the resources of the
Dominions depended greatly upon the adequacy of railway transit, the
subject came within the province of our inquiry. I will not trouble the
reader with statistics (which can be readily obtained elsewhere) beyond
the following statement which represented, at the time we made our
investigations, the railway mileage and the population in each Dominion
compared with the United Kingdom:--

Miles of Population. Number of
Railway. Inhabitants
per Mile of
Railway.
Canada 35,600 8,075,000 280
Australia 18,000 4,500,000 250
South Africa 8,800 1,300,000{207a} 150{207b}
New Zealand 2,900 1,052,000{207a} 370
Newfoundland 800 250,000 320
United Kingdom 23,500 46,000,000 1,950

It is clear that railway construction has not been neglected in the
Dominions, and that, measured by population, the mileage is considerable.
Speaking generally, the Dominion railways are highly efficient and serve
their purpose well. Extensions were being projected and many were in
course of construction for the further development of natural resources
and of trade and commerce.

In Australia the railways, with the exception of certain lines belonging
to the Commonwealth, are owned and worked by the several States. We
found them paying full interest on the cost of construction, and sound
assets of the country. The cost of working was, however, greatly
increasing, due mainly to increase of salaries and wages. How this
stands since the war I do not know; but that expenses have further
advanced goes without saying. An important railway witness whom we
examined expressed the opinion that increased expenditure could be
recouped by increased rates. Perhaps that is still true. If it is, the
railways of Australia are happier than most of the railways in Ireland.

The railways of New Zealand belong to and are worked by the Government.
For many years the Government, looking upon the railways as an adjunct to
the settlement and development of the country, only expected them to
return 3 per cent. interest on the capital expended. In 1909 this
policy, however, was modified, 3.75 to 4 per cent. being then regarded as
a proper result, and this result was accomplished. Water power in New
Zealand is so abundant that the adoption of electricity for railway
working has been engaging the attention of the Government. Many, well
qualified to judge, were satisfied that it would prove more economical
than steam locomotion.

In both Australia and New Zealand, borrowing for railway construction had
been by means of general loans raised for all kinds of Government
expenditure. We came to the conclusion that if loans for reproductive
works, such as railways, had been segregated from others, it would have
helped the raising of capital, and probably secured easier terms.

The construction of railways in Canada has, in recent years, proceeded at
a rapid pace. We found that the mileage had doubled since the beginning
of the present century, due, to a large extent, to the construction of
two new Trans-Continental lines. The grain-growing districts of the
prairie provinces, south of latitude 54 degrees, are now covered with a
network of railways, and British Columbia has three through routes to
Eastern Canada.

The enterprise of the principal Canadian railway companies is remarkable.
They own and operate not only railways, but also hotels, ferry services,
grain elevators, lake and coast steamers, as well as Trans-Atlantic and
Trans-Pacific steamers. One company also has irrigation works, and ready-
made farms for settlers in the prairie provinces. But Canada lies so
near to us, and in the British Press its railways receive such constant
attention, that I need not descant further upon them.

In South Africa, with the exception of about 500 miles mainly in the Cape
Province, the railways are all Government owned, and are worked as one
unified system. The Act of Union (1909) prescribed that the railways and
the harbours (which are also Government owned and worked) were to be
administered on business principles, and that the total earnings should
not exceed the necessary expenditure for working and for interest on
capital. Whenever they did, reductions in the rates, or the provision of
greater facilities, were to restore the balance. This provision also had
the effect of preventing the imposition of taxation upon the community by
means of railway rates. The Act contained another practical clause,
designed to block the construction of lines from political
considerations. Any line constructed contrary to the advice of the
Railway Board, if it resulted in loss, the loss was to be a charge, not
upon the general railway revenue, but upon the Consolidated Fund--a
useful "brake," which I have no doubt has often pulled up hasty and
impetuous politicians.

South African railways enjoy one great advantage--cheap coal for their
engines. In 1913 the average cost at the pit's mouth was 4s. 11.5d. per
ton.

The railways of Newfoundland have had a chequered history. Now they are
Government property, worked by a private company under a 50 years' lease,
which dates from 1901, and under that lease no rent is paid. As the
capital expenditure (about 3,000,000 pounds) averages less than 4,000
pounds per mile, it may be conceived that the railway system of
Newfoundland is not of an extravagant character, and in my humble
opinion, the country deserves something much better. In our fourth
report (on Newfoundland) we stated: "It must also be said that the state
of the permanent way does not conduce to speedy or comfortable
travelling."

The gauges of the Dominions' railways are very varied. In Australia
there are three--5ft. 3in., 4ft. 8.5in. and 3ft. 6in., with some 300
miles or so of less than 3ft. 6in. The Commonwealth has for some time
been considering the conversion of the lines into one standard gauge, the
British gauge of 4ft. 8.5in. being favoured. The cost of this conversion
naturally increases the longer action is deferred, and in any case would
be very great. It was officially estimated at the time of our visit at
37,000,000 pounds.

New Zealand, Canada, South Africa and Newfoundland are each the happy
possessor of one gauge only. In Canada it is the British gauge of 4ft.
8.5in., and in New Zealand, South Africa and Newfoundland, 3ft. 6in.

Our Final Report was signed on the 21st of February, 1917, and published
as a Blue Book in the usual way, but, what is rarely done with any Blue
Book, it was also published in handy book-form, bound in cloth, at the
popular price of 1s. 6d. Blue Books do sometimes contain matter of
general interest, are sometimes well written and readable, and would be
more read if presented to the public in a handy form such as we succeeded
in publishing.

The main purposes of the Commission I have already briefly stated. They
embraced many subjects for inquiry and study, of which the following are
the most important, and regarding each of which it may be appropriate to
say a word or two:--

External Trade of the Self-Governing Dominions

We ascertained and compiled in detail, tables of the Imports and Exports,
distinguishing Trade with (_a_) the United Kingdom, (_b_) the other parts
of the Empire, and (_c_) with foreign countries. The figures showed the
need there was for an Imperial trade policy, which should lead to British
manufacturers and merchants cultivating more the Dominion markets, and
utilising more the vast resources of raw materials which the Dominions
possess. We found that a detailed examination of existing conditions,
and practical and definite proposals for the removal of difficulties,
were required.

Natural Resources of the Dominions

In regard to agricultural matters we gathered and published much
information, finding that in one part or other of the Dominions all
animals and almost every crop flourished that are needed by man, that if
the products of the more tropical parts of the Empire were taken into
account, the Empire could meet more than its own needs; and that if men
existed in sufficient numbers in our Dominions, there was scarcely any
limit to the external trade they could do. In this part of our Inquiry
we found to what a considerable extent people concentrated in large
cities to the detriment of the country districts. "Back to the land" is
a question there of as much if not greater moment than in the Mother
Country. The mineral resources of the Dominions, like the agricultural,
provided us with a big subject. In every Province or State, by oral
evidence, by official statistics, by discussion with Government
geologists, officials of the Mines Departments and others, we gathered a
large amount of valuable information. The volumes of printed evidence
give full particulars of this and other subjects. The mineral deposits
of Canada especially are varied in character and large in respect both of
quantity and value--gold, silver, copper, lead, zinc, nickel, coal, iron,
asbestos, natural gas, petroleum, peat, gypsum--all are found in
unstinted quantity. Nor are the other Dominions deficient. The
goldfields of Australia are historic, and the silver, lead and zinc mines
of Broken Hill deserve particular mention. In South Africa gold and
diamonds are plentiful; and Newfoundland has wonderful deposits of iron
ore.

In forests and fish the Dominions abound, and possess enormous
possibilities of extended trade.

Conservation and Development of Natural Resources in the Future

This subject received our earnest attention. We considered that the
various Governments of the Empire should take steps to secure the
development and utilisation of their natural wealth on a well considered
scheme, and that to do this, a preliminary survey was needed of the
relation between Empire production and Empire requirements. No such
survey, as far as we knew, had yet been undertaken, but in the
_Memorandum and Tables relating to the Food and Raw Material Requirements
of the United Kingdom_, which we submitted to His Majesty in 1915, the
Commission had made an effort, not without some measure of success, in
this direction. We regarded it as vital that the Empire's supplies of
raw material and commodities essential to its safety should be, as far as
possible, independent of outside control, and made suggestions which
aimed at effecting this object. We recommended that the survey mentioned
above should be made by an Imperial Development Board, which should be
entrusted with the whole subject.

Scientific Research in Relation to the Development of Natural Resources

We dwelt on the importance of securing to all parts of the Empire
adequate facilities for scientific research in connection with the
development of their natural resources; and, in connection with this,
made certain recommendations as regards the Imperial Institute, for the
purpose of increasing its efficiency and usefulness.

Migration

To this important matter we devoted much time and thought, not only in
London, but in each of the Dominions as well, obtaining much valuable
evidence and personally examining the circumstances and conditions that
prevailed. No Imperial question, we considered, could be of greater
importance than this. We made many recommendations, some of which have
already been adopted, whilst the remainder are coming into great
prominence now that the war is over. In the past we found no effort had
been made to regulate emigration from the United Kingdom, and we proposed
the establishment of a Central Emigration Authority. The surplus of
females in the United Kingdom, increased unfortunately by the war, will
probably result in many young women seeking their fortune overseas, and
we urged increased facilities and better regulations for their migration,
showing how best we considered they could be given.

Oversea Communications

To this subject, which embraced sea transport, harbours, waterways, mail
communications, postal rates, freight rates, etc., we devoted
considerable time, calling attention in particular to an aspect of the
question never, so far as I know, investigated before, viz., the urgency
of constructing deep harbours suited for the deep draught vessels which
alone can carry on cheap and rapid transport. We made recommendations as
to the improvements immediately necessary on the great trade routes, and
urged that future schemes should be submitted to an Imperial Development
Board.

Telegraphic Communications

In the far distant Dominions, cable communication is a matter of great
importance to the community; and increased facilities and cheaper rates
are much desired. Some of the recommendations we made to this end have
since been adopted.

Improvement in Commercial Practice

This presented a large field for inquiry; and, after much investigation,
we made recommendations on Trade Intelligence; Trade Commissioners and
Correspondents; Consular Service; Improvements in Statistics; Conference
of United Kingdom and Dominion Statisticians; and other matters, all of
which we considered were of practical necessity.

Lastly, the need of creating an _Imperial Development Board_ engaged our
serious attention. Early in our Inquiry we had been impressed with the
necessity for the appointment of some board or body whose constant duty
it should be to consider questions affecting Imperial trade and
development, from the point of view of the interests of the whole Empire.
We took some evidence on the subject, discussed it with leading men in
the Dominions, gave the question much thought, and finally recommended
the establishment of a new Imperial Development Board, which should
include not only representatives of the United Kingdom and all the
Dominions, but also of India, the Crown Colonies and the Protectorates.
In the course of our work we had been much impressed with the inadequacy
of existing organisations to deal promptly and efficiently with such
matters as the following:--

Telegraphic, cable and shipping communications between the various
portions of the Empire

Inter-Imperial mail services and postal rates

The development of harbours and waterways on the great routes of commerce
to meet Imperial requirements

Migration as a factor in Empire development and trade

Legislation affecting the mechanism of trade, such as that on patents,
companies, copyright, weights and measures, etc.

The application and better utilisation of capital raised in the United
Kingdom and other parts of the Empire, towards promoting the development
of the Empire's resources

The systematic dissemination throughout the Empire of news bearing upon
Imperial questions and interests

The preparation and publication of Imperial statistics

Better organisation for handling and for disposal of the produce of
various parts of the Empire

These, and subjects of a similar nature, we considered should be assigned
to the proposed Board as its ordinary work; and to the duty of advising
the Governments on these matters would be added that of collecting the
necessary particulars bearing upon them, involving research not only into
the conditions prevailing in the Empire, but into the methods of rival
trading countries.

To a large Board we were opposed. We suggested that members should be
required to give their whole time to the work, and that representation of
the various parts of the Empire might be as follows:--

United Kingdom, India, Crown Colonies and Protectorates 7
Canada 1
Australia 1
New Zealand 1
South Africa 1
Newfoundland 1
___
12
___

Such is a brief summary of our Mission, our Report, and our
Recommendations.

Whilst we were impressed by the vast extent and infinite variety of the
Empire domain we were also touched by the sentiment which held together
its widely scattered parts. Without this sentiment, and without loyalty
to the Crown and Mother Country, what, we often thought, would happen?

The war has taught us much as to the unity of the Empire. Peace, we may
be sure, will bring its own lessons, perhaps its own dangers, in its
train. To strengthen the bonds so loosely yet so finely drawn must
henceforth be the constant duty of the Statesmen of the Empire. The
governing machinery requires overhauling, demands adjustment to the needs
of the various sections of the Empire, and to the throbbing anxiety of
each to share in the duties and responsibilities of Empire Government and
Development.

CHAPTER XXXII.
CONCLUSION

The year 1917 terminated our Dominions' Commission work and brought to a
close the fiftieth year of my railway life. As if to mark the occasion,
Dame Fortune gave me a pleasant surprise, and what it was I will now
relate.

In an earlier chapter I have spoken of the Letterkenny to Burtonport
Railway (in North-West Donegal), with the early stages of which, in 1897,
I had something to do. Now, in 1917, twenty years later, I was to become
still more intimately acquainted with it, and, in an unexpected but
practical way, concerned in its domestic affairs.

Though the Londonderry and Lough Swilly Railway Company, which worked the
Burtonport line, was a railway of only 14.5 miles in extent, it was
entrusted with the working of no less than 85 other miles, 50 of which
consisted of the Burtonport railway--a condition of things quite unique:
the tail wagging the dog!

The total capital expenditure on the whole of the 100 miles of line
worked by the Lough Swilly Company amounted to 727,000 pounds. Of this
sum about 500,000 pounds, or 68 per cent., was money provided out of
Government funds. The ordinary stock of the Lough Swilly Company was the
exceedingly small sum of 50,330 pounds, upon which for twenty years a
dividend of 7 per cent. had been regularly paid.

The Burtonport line was opened for traffic in 1903. From the first, its
management, to say the least, was faulty and illiberal. So early in its
history as 1905 an inquiry into its working was found to be necessary,
and I was asked by the Board of Works to undertake the inquiry. I did
so, and I had to report unfavourably, for "facts are chiels that winna
ding." For some time after my report things went on fairly well, but
only for a time. The Board of Works were, by Act of Parliament,
custodians of the public interest in the matter of this and other similar
railways, and a long-suffering and patient body they were. From time to
time they complained, protested, adjured, threatened; sometimes with
effect, sometimes without. Years rolled on and matters grew worse. Loud
public complaints arose; the patience of the Board of Works exhausted
itself, and a climax was reached.

_The Railways Ireland Act_, 1896, provides that where any railway,
constructed under that Act, or under other Irish Light Railway Act, had
been aided out of moneys provided by Parliament, the Board of Works
might, at any time, appoint "a fit person to inspect and report upon the
condition of the undertaking and the working, maintenance and development
of the same," and if such "fit person" reported that the undertaking was
"not efficiently worked, maintained and developed" the Privy Council
might then make an Order appointing a manager or receiver of the
undertaking, with such powers as should be specified in the Order. The
powers thus given are, it will be observed, certainly drastic.

In April, 1917, Sir George Stevenson, K.C.B., the Chairman of the Board
of Works, asked me would I make such an inquiry for them into the
Burtonport line, and, considering myself a "fit person," I gladly
answered _Yes_. Sir George Stevenson was Tom Robertson's successor,
though not his immediate successor, as another George (Sir George Holmes)
came between. He (the reigning Chairman) was, in 1892, appointed a
Commissioner of the Board of Works; and in 1913 he attained the position
of Chairman; and the chair it is generally conceded has never been better
filled. He has the advantage of continuous experience of Treasury
business since 1886, and possesses an exceptional knowledge of all
matters, local and otherwise, affecting the development of State Railways
in Ireland.

My inquiry I may, I am sure, without immodesty, say was thorough and
complete. On the 7th of May I presented my report. The facts which I
found were such that only one conclusion was possible--the line was not
in good condition; was not and had not been efficiently worked,
maintained or developed. I will not harrow my readers with a description
of its condition. One little quotation from the summing up in my report
will suffice to indicate the state of affairs, and, to the imaginative
mind, present a picture of the whole. "Everything has for years past
been allowed to run down; the direction and management have been
characterised by extreme parsimony; and the disabled condition of the
engines is undoubtedly due to lack of proper upkeep, which must have been
going on for years. The state of the permanent way shows a want of
proper maintenance; and the condition of the stations, buildings and of
the carriages speaks of neglect."

In fairness, I ought to say that the direction and management responsible
for these things are not the direction and management that exist to-day.

Mr. Henry Hunt, the present General Manager of the Londonderry and Lough
Swilly Company, was appointed to that position in September, 1916. He
came from the Great Central Railway. This is what I said about him in my
report: "He is a good railway man, capable and experienced. He has
assumed and exercises an authority which none of his predecessors
possessed, and is keen to do all he can to improve matters and develop
the railway." Further acquaintance with Mr. Hunt has more than confirmed
my high opinion of him.

In due time my report was submitted to the Privy Council, which august
body, after hearing all that was to be said on the subject by the Lough
Swilly Railway Company and others, made an Order which is the first of
its kind--an Order which, for a period of two years, took out of the
hands of the Lough Swilly Railway Directors the management of the
Burtonport Railway, and placed it in the hands of Mr. Hunt, subject to my
supervision. The Order said: "Henry Hunt, at present the General Manager
of the Londonderry and Lough Swilly Railway Company, is hereby appointed
Manager of the said undertaking of the said railway under and subject to
the supervision of Mr. Joseph Tatlow, Director of the Midland Great
Western Railway Company of Ireland." Then followed various clauses
defining the duties and authority with which Mr. Hunt, as Manager, was
invested.

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