A Treatise on the Police of the Metropolis Part 22

VII. _An improved Mode of keeping Accounts._

VIII. _An annual Inventory of Stores on hand._

IV. OLD STORES.

The mode at present practised in disposing of unserviceable Naval and Victualing Stores by Auction, in the Public a.r.s.enals and Repositories, is productive of infinite evils, independent of the cover which is thereby afforded to many purchasers, of loose conduct, in protecting them, by means of the certificates they obtain against the penalties of the Law, as Receivers of stolen and embezzled goods of the same species and quality; thereby not only defeating the ends of Public Justice, but operating as an encouragement to these criminal dealers to extend the iniquitous part of their trade, by holding out facilities and incitements to those who have access to commit depredations on the Public Property, which possibly would never have otherwise taken place.

The Public Sales at the Dock-yards and other Repositories, draw together men of loose and depraved morals; who, in order to obtain bargains, do not hesitate (wherever it can be done) to seduce, by means of pecuniary gratuities, the inferior officers and labourers into the evil practice of mixing superior stores with unserviceable articles, ordered to be made up in lots, so as to elude discovery. New and valuable cordage has been detected coiled within old cables,[75]

while frauds also are practised as to the weight, and in the delivery of greater quant.i.ties than are actually sold.--Such practices have taken place in spite of the vigilance and attention of the superior officers, by which a two-fold mischief arises,--in the immediate loss which is sustained by the frauds thus practised, and in the cover which is thus afforded for the protection of additional stores purchased clandestinely; perhaps from the persons who have been thus corrupted.--An evil so prominent, in the view of a very able and penetrating Judge now upon the bench, as to induce him to declare publicly in Court, immediately after a trial, where a notorious offender (as many notorious offenders do) escaped Justice, under the cover of his certificates: "That _Government had better burn their old Stores than suffer them to be the means of generating so many offences_"--or to the same effect.

[Footnote 75: An instance of this kind occurred about two years ago in one of the princ.i.p.al yards, where a large quant.i.ty of new and valuable Cordage was found concealed within the coils of a large unserviceable Cable; which composed one of the lots in the Catalogue of the Sale.--And thus a connection was discovered between the Criminal Purchaser and the Labourers employed in making up the Lots.]

It is however humbly presumed that a remedy may be applied without the destruction of such valuable materials; and the following suggestions are offered with a view to this object.

_Plan for an improved mode of disposing of unserviceable Naval and Victualing Stores._

1st. That instead of selling those stores upon the spot where the criminal connections are formed, the Naval articles shall be made up in a.s.sorted lots suitable to the _London, Bristol, Liverpool, Whitehaven, Glasgow, Newcastle, and Hull_ Markets. That a responsible Agent should be appointed to conduct the sales at each of these _Ports_.--That they shall be men of the first respectability in the commercial line, who can give ample security for their fidelity in the execution of the trust reposed in them.--That they shall receive the stores at the yards or repositories where they are made up, and convey them to their respective Warehouses at their own expence: on having an allowance of _6 per Cent. for Freight-charges, Warehouse-rent, Insurance_ against _Sea-risk and Fire_, and all other expences; _and 4 per Cent. for commission on the amount of the Sales_.

That the said stores shall not on any pretence be sold to dealers, but only to the _actual consumers_, or Rope Spinners to convert into small cordage; _nor shall any certificate be granted to purchasers on any pretence whatsoever_.

That accounts of sales shall be furnished monthly, and such sales shall be accompanied by _a full remittance for the amount_, it being always understood that no credit is to be allowed.

That at the end of each year, an inventory shall be transmitted on a specific day to be fixed, of the whole stores on hand, and a general account current shall be then furnished; in which shall be exhibited, agreeable to a form to be prescribed, a complete view of the whole transactions which have occurred during the preceding year, with a full remittance for the balance due on the said account.

2d. That the _Metalic Stores_ which are deemed unserviceable shall be deposited in a commodious Magazine in London, under the charge of a responsible Agent, competent to such a trust.--That it shall be his duty to employ proper Artificers to convert all that are capable of being converted into serviceable Stores, and when so renovated, to be returned to Deptford Yard.--And such Metalic Stores as are incapable of being converted into useful purposes at a moderate expence, so as clearly to demonstrate a saving to Government, shall be disposed of to founders and others, at the best price that can be obtained.

The Agent for Metalic Stores to be allowed 10 per Cent. on the value as ascertained, by the original Invoice, founded on a survey and valuation upon oath, and this to be in full of _Freight, Carriage, Warehouse-rent, Insurance from fire, and all other expences, including Commission for his trouble_, on all Stores that are again converted to useful purposes; and 7-1/2 per cent. on the value of such as are sold, in consequence of their being incapable of being rendered useful; so as to make it the interest of the Agent to render as large a portion useful as possible.

It is presumed that by an arrangement of this kind, an immense sum will be saved to the Public annually; who would retain the Contractor's profit in all cases where Old Stores are received back at the price of old Metal, and again returned at the full contract price, after a small expence is incurred in converting them into serviceable Stores.

3d. That in consequence of the superior resource for the consumption of _Provisions, Casks_, &c. in London, the whole of the unserviceable Victualing Stores (except such as from their small value and bulky nature will not defray the expences of conveyance) shall be collected in a large repository in London, under the charge of an able and intelligent Agent, who shall give proper security for his faithful management; and conduct the sales upon the principles already explained _for ready money only_, rendering an account _and making his payments monthly_, and a final Account and Inventory at the end of the year; to be at the whole expence of removing the goods from the different Repositories to the Magazine in London; to be allowed 4 per Cent. Commission on the sales, and 6 per Cent.

in lieu of all charges.

4th. That the attention of the respective Boards may not be diverted from other objects by attending to the details, which will arise in the management of those establishments, a superintending Agent shall be appointed, who shall receive the directions of the different Boards, and correspond with the local Agents.--He shall moreover be the _Receiver General of the monthly remittances_, and shall immediately pay the same as directed by the Lords Commissioners of the Admiralty.--It will be his duty to arrange the s.h.i.+pping of Old Stores from the different Yards, in conformity to the wants or demands of the respective Agents, so as to keep up their several a.s.sortments, by conveying to each not only such articles, (as far as it can be done) as are most in demand, but also such as comparatively fetch the best price.--He shall receive the monthly and yearly accounts, and lay an abstract of the same before the Lords of the Admiralty, and the Navy and Victualing Board respectively, as they apply to their different departments, and shall be the general medium of communication from the respective Boards to the local Agents.--The superintending Agent shall transmit a regular invoice to the local Agents of all goods s.h.i.+pped:--Shall keep regular books and accounts of all transactions under his charge, and shall receive for his trouble _1 per cent._ on the Remittances or Payments which he may make, under the directions of the Lords of the Admiralty.

By this arrangement it will be the interest of all the parties concerned, to render the sale as productive as possible; and as the stores in question will constantly be exposed to sale, where the demand for such articles is most extensive, the probability is, that higher prices will be obtained than at present; and that upon the whole, after paying all expences, a larger aggregate sum will be received annually by Government, since, as the sales are only to be made to the actual Containers, the Dealer's profit will make a part of the Sale Price, and will be thereby secured to the Public. As men of the first character and respectability may be expected to solicit for such Commissions, no doubt can be entertained, either of the purity of their conduct, or their exertions to sell to the best advantage. Their credit and interest, and also the emulation between one Agent and another, as to who shall make the best sales, will prove a powerful stimulus and a strong ground of security.--Above all, the plan is easy and practicable:--It imposes no trouble upon the superior or inferior officers in the different Naval Departments, and no doubt can be entertained, that while it shuts up all the avenues to fraud and peculation, which at present operate so powerfully in facilitating the stealing and embezzling of Naval and Victualing Stores, in the result it will prove highly beneficial to Government.

V. THE PERQUISITE OF CHIPS.

The extensive evils arising from the permission granted to Artificers in the Dock-yards, to convert chips to their own use, and to remove them in bundles from the Dock-yards, having already been noticed, it may only be necessary to add, that on the abolition of this perquisite, which the Author has reason to believe is now in contemplation, a liberal increase of wages should be made to the Artificers in lieu thereof; and that hereafter Chips should not be sold in the Yards by Public Auction, but removed to a place of deposit at some small distance, and disposed of, not to the highest bidder, but at such price as should be offered above the estimated value, and by no means by contract.

By adopting this mode, the saving of _useful Timber, Time, and Property_, which, through the medium of the existing practice, is _purloined, lost and stolen_, would probably exceed any estimate that has been formed from a view of the present abuses.

This measure, while it forms an important Link in the preventive Chain, would appear to be easy and practicable.

If necessary the superintending Agent for unserviceable stores, whose functions have already been explained, could take upon him the sole management of the disposal of the chips at the different Yards, by which a handsome sum might be obtained annually in aid of the resources of the State, perhaps more than would be sufficient to pay the additional wages of the Artificers, while no existing arrangement in the Yards would be disturbed, nor any trouble given to the Officers, who at present fill the respective Departments in those a.r.s.enals.

VI. THE ABOLITION OF FEES AND PERQUISITES, AND AN INCREASE OF SALARIES.

The total Abolition of Fees guarded by the severest penalties, is an important object in the preventive System: Until this is effected, it will be in vain to expect purity of conduct. Under this pretext, men of loose principles, in transactions with Government, seldom fail to seduce from the strict line of their duty, _avaricious, extravagant, or indigent Officers_, whose business it is to check and control the receipt and delivery of property, and to _arrange, settle, and adjust Accounts_, or _to form Public Doc.u.ments_. The delusion and seduction of these Officers is not seldom effected by the supposed liberality of those whose business must pa.s.s through their hands; and they are not at all times perfectly aware of the injury that is done to the Public.

It has already been observed, and it is a circ.u.mstance much to be lamented, that in too many instances, where individuals have pecuniary transactions with any of the Departments of Government, a dereliction of principle is apparent which does not extend to the general intercourse of society, and hence arises the necessity of _stronger guards_, where the Public interest is concerned; and nothing appears to be better calculated to counteract this baneful propensity in the human mind than _the total abolition of fees and perquisites_.

It is said to be no uncommon thing to pay 300_l._ for a Clerk's situation in the Dock-yards, where the salary does not exceed 30_l._ or 40_l._ a year; and it is known that some who hold such situations live very expensively. It may be fairly asked, in what manner a person so situated is to reimburse himself? the conclusion is obvious, and the result has been already explained, which may perhaps be still farther elucidated by stating the following fact:--

An Officer of Justice having discovered some instances of pillage and peculation going forward in the course of the removal of old copper and other articles, from a dismantled s.h.i.+p of war, complained to the Store-keeper in the Dock-yard, whose province it was to have received those articles into his charge, which were conveyed elsewhere.--He replied thus: "D--n it, mind your own business.--Such things have always been done, and will continue in spite of you and me; it will, at any rate, last our time."

While the resources of Government are fully commensurate to the liberal remuneration of its servants, so as to place them above all temptations to abuse the trust reposed in them: and while such remuneration is in itself no less politic than just, the object and view of the Author of these pages differs widely from this faithless servant of the Crown. The suggestions now offered, lead to measures, which he now trusts to the honour and credit of those respectable characters, at the head of the different departments, are in the best train of being adopted, by the total abolition of Fees and Perquisites, and a liberal Increase of Salary, in lieu of the reduction of income, which such an arrangement will occasion: Such salaries as will secure to the Nation those inestimable advantages, which always result from _rect.i.tude of conduct_, _zeal_, _accuracy_, and _fidelity_, in the discharge of Public trusts committed to subordinate Officers. It is by this and other wise and practicable arrangements, that a confidence is to be established, "that the resources of the State _will not only last our time_," but extend to many generations; while the improvement of Public morals will contribute, in an eminent degree, to the happiness and prosperity of the country.

VII. AN IMPROVED MODE OF KEEPING ACCOUNTS.

Under an impression, that very few improvements have been introduced, since the establishment of the original System, for keeping the Navy and Victualing Accounts, brought forward by KING JAMES II. when Duke of York; while the frauds which have been committed by various devices, prove some imperfections in the mode of accomptants.h.i.+p as now practised, since no means appear to exist, whereby deficiencies can be checked and discovered; it may be worthy of inquiry, whether many of the modern improvements, which the vast extent of our Commerce has introduced, might not be rendered useful in establis.h.i.+ng new Checks, by means of a System of Book-keeping, which would have the same effect in detecting frauds, and discovering inaccuracies, as prevails in arranging and closing the accounts of well-regulated Commercial Establishments; adopting at the same time in the general detail, particularly in the transit of stores, some of these excellent regulations, which have been found so salutary and useful in the system of the Excise. Of the practicability of improvements of this nature there can be little doubt, since it merely depends on the exercise of that _knowledge, attention_, and _a.s.siduity_, which, when properly exerted, has generally accomplished objects, which have often appeared impracticable to minds uninformed, or not enlarged by an extensive intercourse with the world, or a knowledge of the general affairs of life:--But as this observation can in no respect apply to the respectable and intelligent Individuals, who superintend the Great Public Concerns, which have been subject to the various abuses, which they feel so anxious to remedy, sanguine hopes are entertained, that an improvement in the mode of keeping the Official Accounts may be speedily carried into effect.

VIII. AN ANNUAL INVENTORY OF STORES.

Supposing an accurate System of Book-keeping to be adopted, and to be followed as a part of the proposed System of Accuracy, indispensably necessary, _by an annual account of Stores_; the advantages resulting from it are not to be estimated by the most sanguine mind. Independent of the benefits which would arise from the general accuracy, which would thus incircle the whole oeconomy of the design, discoveries would be made wherever frauds or embezzlements took place, while the labour and expence, which such a task might impose, would be compensated one hundred fold, in the National advantages which it would produce.

Thus has the Author briefly gone over the whole ground, which he had a.s.signed to himself, as comprehending every object on the subject of the depredations on his Majesty's Stores, which appeared likely to render his suggestions useful to his country, whether they relate to improved Legislative Regulations requiring the aid of Parliament, or to Measures competent for the Lords Commissioners of the Admiralty to carry into effect. In the prosecution of this task he has been stimulated in a particular degree, by the laudable and patriotic disposition, which has been manifested to promote improvements in Naval Police, and the honourable proofs he has received of a desire to render his suggestions useful.

If the period should indeed arrive (and it is to be hoped it may soon arrive) when these suggestions, or even a part of them, shall be acted upon, in a manner calculated to promote the National Interest, the Author of these pages will then feel himself gratified, and rewarded by the pleasing reflection, that his well-meant labours, in placing an important branch of the political oeconomy of the country in this particular point of view, have not been in vain.

CHAP. X.

_Receivers of stolen Goods more mischievous than Thieves;--the latter could not exist without the a.s.sistance of the former:--the Suppression therefore of Receivers would restore to Society, and to honest Industry, a great number who at present live by crimes.--The increase of Receivers of stolen Goods to be attributed to the imperfection of the Laws, and to the disjointed state of the Police of the Metropolis.--The number of common Receivers does not exceed sixty; of whom not above ten are persons of property able to purchase valuable articles.--Thieves, in many instances, settle with receivers before they commit robberies:--Receivers always benefit more than Thieves:--Their profit immense:--They are divided into two cla.s.ses.--The immediate Receivers connected with Thieves, and those who keep shops and purchase from Pilferers in the way of trade:--The latter are extremely numerous.--The Laws are insufficient effectually to reach either cla.s.s.--The existing statutes examined and briefly detailed, namely, the 3d and 4th of William and Mary, cap. 9; the 1st Anne, cap.

9; the 5th of Anne, cap. 31; 4 George I. cap. 11; 29 George II. cap. 30; 30 George II. cap. 24; 2 George III. cap. 28; 10 George III. cap. 48; 21 George III. cap. 69; 22 George III. cap. 58.--Observations on these respective statutes.--Amendments and improvements suggested.--Means proposed to ensure the due execution of these improvements._

Having in the preceding Chapters completed the proposed explanation of the various depredations and frauds upon the Public: It remains now, in the order of the plan, to examine and follow up the progress of this property, from the hands of _Thieves_, _Robbers_, _Cheats_, and _Swindlers_, to that of _Receivers_, or first Purchasers of Goods stolen or fraudulently obtained.

In contemplating the characters of all these different cla.s.ses of delinquents, there can be little hesitation in p.r.o.nouncing the _Receivers_ to be the most _mischievous of the whole_; inasmuch as without the aid they afford, in purchasing and concealing every species of property stolen or fraudulently obtained, Thieves, Robbers, and Swindlers, as has already been frequently observed, must quit the trade, as unproductive and hazardous in the extreme.

Nothing therefore can be more just than the old observation, "_that if there were no Receivers there would be no Thieves_."--Deprive a thief of a sale and ready market for his goods, and he is undone.

Let the strong arm of the law, and the vigour and energy of the Police be directed in a particular manner against _Receivers_; and the chief part of those robberies and burglaries, which are so much dreaded, on account of the acts of violence which attend them, _would absolutely cease to exist_:--and the resource for plunder being thus narrowed in so great a degree, robberies on the highway would _alone_ seldom answer the purpose of the adventurer; where the risk would be so exceedingly multiplied, while the advantages were in the same proportion diminished;--the result therefore would be, that in _the suppression of the Receivers_, the encouragement to become Thieves and Robbers would be taken away: and the present Depredators upon the Public must either return to honest labour as useful members of the State, or submit to be starved.

Obvious and desirable however as a measure of this sort would be, it has never hitherto been put in practice. This has proceeded from a variety of causes; one of the princ.i.p.al of which is the disjointed state of the Police of the Metropolis, occasioned by a number of jurisdictions clas.h.i.+ng with each other, and preventing the full operation of a proper system of vigilance and energy; which, with the aid of apposite and improved laws and a superintending agency, could not fail, either to root out all the Receivers of stolen Goods of any consequence, or compel them to abandon their mischievous trade.

These observations apply to that cla.s.s of Receivers alone, who are in immediate connection with the thieves, burglars, and highway robbers;--and who aid and a.s.sist them in the purchase and concealment of whatever is stolen.--From the best information that can be obtained, their number does not exceed _fifty_ or _sixty in all_; of whom not more than ten, (whose names and places of abode are well known) can be said to be persons of property who can raise money to purchase articles of considerable value.