power; over-insurance; defective construction, and undue length; and, that a full half of the losses arose from two of these causes, first, that "a great number of ships are regularly sent to sea in such a rotten and otherwise ill-provided state that they can only reach their destination through fine weather;" and, secondly, that "a large number are so overloaded that it is nearly impossible for them also to reach their destination if the voyage is at all rough."
As I have already endeavoured to show, the "Merchant Shipping Consolidated Act" of 1854, with its 548 clauses, was passed expressly for the purpose of remedying by law, as far as practicable, existing evils, and the amended Acts of 1855, 1862, 1871, and 1873 had the same object in view; so that there was in force, at the time when the Commission commenced its inquiry, a mass of legislation, which, in itself, ought to have been amply sufficient to prevent and punish the offences alleged to be committed. Indeed, conscientious Shipowners have been heard to say that they were appalled at the numerous instances in which they had found themselves law breakers, from the simple impossibility of bearing in mind, owing to the number of Acts in force, their legal duties. Yet, if Mr. Plimsoll's recommendations had been carried into effect, the manifold legislation, then in force, would have been very much increased.
and mode of thorough investigation. Happily, however, the Commission saw, after thoroughly examining the whole subject, that it was not by increase of legislation, that such evils could be remedied, but by a more effectual application of
