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C A B I N E T.
SECRET.
CP. 286
(52)
TRANSPORT POLICY.
MEMORANDUM BY THE MINISTER OF TRANSPORT.
-In C P . 5 2 ( 3 2 ) I drew the attention of the Cabinet to
certain questions raised by the railway companies in
representations which they had recently made to me.
It may be
convenient if I now indicate the general directions in which we
are likely to he called upon to frame and apply a definite
transport policy.
RECENT DEVELOPMENTS.
During the last few years several important
legislative and other steps have been taken in the field of
transport which may be summarised as follows:­
(l) Highway administration was largely reformed under the
provisions of the Local Government Act,
1929c
The changes
were brought smoothly into operation.
(2)
A progressive and continuous policy of road and
bridge improvement and construction has been pursued.
The
drastic retrenchment recently necessitated by the financial
crisis, has involved the cancellation or postponement of works
to the amount of about £ 3 5 millions and haw brought the
progress of improvements for the time being to a standstill.
But in spite of this, facilities for transport by road have
been greatly improved and increased.
One result of the
strengthening and widening of the main routes has been to
encourage heavy end fast moving commercial traffic, both goods
and passenger, over long distances, thus no doubt to some
extent aggravating and accelerating the diversion of valuable
traffic from the railways.
(3)
On the other hand, the inclusion of the railway
companies in the derating scheme of
I929
was Intended to
encourage the movement of the heavy coal and iron and steel
traffics and also of agricultural traffics "by rail.
It will he
remembered that the railway companies are not permitted to retain
any part of the "benefit of derating for themselves.
They are
required under rigid statutory provisions to pass on the whole
henefit to specified classes of railway users.
The amount of
the rebates allowed to traders has "been increased as a result of
the smaller volume of traffic, hut the assistance which the
scheme might have afforded to the railways by s timulating their
traffics has been diminished by the industrial depression.
The
future operation of the scheme is somewhat uncertain as the
assessment of the railways on the new basis of valuation has
still to be determined.
The railways and their users were assisted by the
repeal of railway passenger duty in I 9 2 9 , the capital equivalent
of the duty being applied to the provision of new facilities
and improvements involving an expenditure equivalent to the
capitalised value of the duty.
(if) Partly with a view to redressing the balance between
rail and road and partly to meet the increasing costs of the
highways, taxation on the heavier commercial vehicles was to
some extent increased by the Bnadget of 1 9 2 6 , and a new duty on
petrol was imposed in 1 9 2 8 .
At the same time, a rebate of 3
0
per cent, of the vehicle tax was accorded to the heavier classes
of vehicle if fitted with pneumatic tyres, a concession which has
been of substantial advantage to the owners of such vehicles.
(5)
Powers to operate services by road and subsequently
by air were granted to the railway companies.
The power to
operate services by road has been of great importance and the
railway companies have taken full advantage of it on the
passenger side to secure substantial interests in a large number
of omnibus end coach companies.
(6*) The Road Traffic Act, 19/?0, in addition to "bringing
the law relating to motor vehicles generally up to date,
established a comprehensive scheme of regulation of public
service passenger vehicles.
It also introduced certain new
and amended requirements (i e. as to construction and use of
e
vehicles, the age of drivers and the regulation of drivers'
hours of labour in respect of goods vehicles), but stopped short
of any effective scheme of regulation of goods traffic by road.
(7)
The scheme embodied in the London Passenger Transport
Bill, including the agreement for a pooling scheme between the
proposed Board and four amalgamated railway companies, is
designed to settle comprehensively the problem of co-ordination
of passenger transport over the wide area embraced within a circle
with a radius of approximately 2 5 miles from Charing Cross,
FURTHER PROBLEMS.
Looking to the future, the ground to be consolidated
or marked out for further advance lies in the following main
directions: ­
1.
Road Traffic Act, 19^0.
Most of the features of the
new legislation (including, for example, the introduction of a
scheme of compulsory third party insurance.) have given rise to
far less trouble in operation than, might have been apprehended.
The close contact which my Department maintains with the various
road transport road other ant erests concerned, and its practice of
consulting with them in regard to the making of regulations,
conduce to smooth working.
Part IV of the Act, which relates to licensing of
public service passenger vehicles, has inevitably given rise
to some criticisms, but they are diminishing as the Act comes
to be better understood and initial difficulties clepr a w a y .
The value of its protective as well as its restrictive provisions
is being increasingly realised b y road o p e r a t o r s , .
-
If
-
The transfer to 13 bodies of Commissioners of the
functions hitherto performed (often most inadequately) by
about 1 , 3 0 0 separate local licensing authorities has been
effected without undue difficulty, if regard be had to the
magnitude of the change.
It is, of course, true that certain
of the municipal and other bodies, who were themselves interested
in trams and other forms of municipal transport, do not
altogether like the loss of the power to license their
competitors, which under the old system was open to abuse*
Apart from the inevitable refusals to license services
which were not being satisfactorily or regularly conducted; the
Commissioners were required, in giving effect to the directions
of Parliament, to have regard "to the extent to which the
proposed services were necessary or desirehie in the public
interest and "to the needs of the area as a whole in relation to
traffic
end the co-ordination of all forms of
passenger transport including transport by rail".
Some of their
decisions were bound to involve refusals of licences to
unnecessary or unreasonably competitive services, and it is a
matter of common knowledge that during the progress of the Bill
3
and in the months immediately after its passage before the new
system of licensing could be established, a great many new
services were started in the hope of staking out claims for the
future.
The new Government assumed office at the moment when
the decisions of the Commissioners were becoming operative and
being made the subject of appeal.
It is easy to conduct an
agitation in favour of some particular applicant without full
knowledge of the circumstances and without reference to the
general position and the results of sporadic or uneconomic
competition upon regular services, and it is inevitable that in
dealing with an enormous number of applications the Commissioners
must make some mistakes.
It is, therefore, not surprising
that I have had to deal with some troublesome- appeals and to
answer a good many Parliamentary Questions on the subject.
I took steps, however, at the end of last year to
issue a general direction to the Traffic Commissioners
reminding them of the importance of giving full consideration
to the case of the small man and the legitimate demands of the
public.
Complaints against the operation of the Act are now
less frequent.
Substantial progress has been made towards a
better co-ordination of passenger transport and the responsible
organisations of the motoring industry realise the value of the
Act in bringing stability and proper conditions of employment
into the industry.
The smaller men are also beginning to
appreciate the protection they derive from the orderly system
of licensing which has replaced the competitive chaos prevailing
on many routes.
In London, special problems arise.
The congestion of
the streets by motor coaches has been a source of anxiety to
the Commissioner of Police for the Metropolis and for the
City of London.
A Committee of Inquiry, presided over by
Lord Amulree, has confirmed the necessity of restricting the
use of streets in the central area and has also advised me
upon a number of individual appeals from the Traffic
Commissioners
1
decisions.
I have accepted their advice and,
pending the creation of a Passenger Transport Board, no more
satisfactory means of handling a difficult position will be
open to me.
2.
The early passage of the London Passenger Transport
Bill is indeed the only satisfactory means of co-ordinating
passenger transport in the special and complicated area of
Greater London.
I need not recapitulate the arguments in
favour of this step or the reasons which have led me to the
conclusion- that the scheme is the only practicable technical
solution of the problem, since they have been laid before the
Cabinet on other occasion
5.
The investment.of the main line railways in omnibus
and coach undertakings under the powers which they senured five
years ago, careful administration of Part IV of the Road
Traffic Act,
3-95 * d the establishment of the London
0
e n
Passenger Transport Board xould carry co-ordination of passenger
transport as far as need he contemplated at present.
Under the head of careful administration of the Road
Traffic Act, I include a proper enforcement of the legal
speed limits - a matter to which the Home Secretary is giving
special attentions
I also include the proper observance of legal
requirements as to hours of employment of drivers and conductors
and of the Psir Wages Clause, where enforcement is more
difficult,,
It will be necessary to require all drivers of
licensed passenger vehicles to carry way-bills or journey
records of an appropriate kind which will show the times of
their journeys and duties and will be available for production
to authorised persons.
Such records are recommended by the
Road-Rail Conference in respect of goods vehicles and, if
existing powers are found to be inadequate to cover passenger
services, I should propose to seek further powers in relation
to this class of traffic in any further legislation.
Co-ordination of goods transport
0
On assuming office,
it was represented to me that at present the legal speed limits
for heavy goods vehicles and the legal limitations upon the
loads which they may carry were being widely ignored,,
Heavy
vehicles proceeding at high speeds doubtless cause much general
inconvenience through noise and vibration, epart from the
question of roed damage or public safety.
The Traffic
Commissioners have no jurisdiction over goods vehicles and
enforcement of the law must rest entirely with the police,
including the mobile police, and with the highway authorities,
I contemplate some simplification of the existing schedule of
speeds, hut no general relaxation.
Simplification should make
enforcement easier, hut amending regulations will require an
affirmative resolution of both Houses of Parliament.
- As regards overloading, the railway companies complainec
and still complain that this is frequent, gross and notorious
There is undoubtedly much ground for t h i s c o m p l a i n t a n d i n
conjunction with the Home Office I b a v e been considering vrhat
action can be taken for t h e better enforcement of the law
3
There remained more fundamental issues, namely:­
(a)
whether the incidence of the total burden of m o t o r
(b)
whether some system of l i c e n s i n g g o o d s
t a x a t i o n a n d of h i g h w a y c o s t s is f a i r l y
d i s t r i b u t e d between t h e u s e r s o f t h e r o a d s a n d
other i n t e r e s t s , b e t w e e n t h e d i f f e r e n t c l a s s e s
of road u s e r s i n t e r s e a n d b e t w e e n t h e h e a v i e r
and lighter v e h i o i e s " " i n e a c h c l a s s .
vehicles
should be established s o t h a t t h e y may b e b r o u g h t
u n d e r the same k i n d o f r e q u i r e m e n t a s t o q u o t a t i o n
of rates, the a v o i d a n c e o f u n d u e p r e f e r e n c e , e t o *
5
as the railway companies,.
Equitable taxation of commercial road transport in
relation to the use which it makes of and t h e v a l u e it d e r i v e s
from the highway system a p p e a r e d t o me to lie at the r o o t o f
the reil-*road problem, and a j u s t a n d speedy settlement o f
this question to be on all grounds desirable.
In the hope that I should be a b l e to narrow down
the area of controversy, I d e c i d e d , a s the Cabinet is a w a r e
3
*
to set up as a preliminary step a small Conference c o n s i s t i n g
of the General Managers of the four railway companies a n d
-four representatives of the goods side of motor t r a n s p o r t
(under the i n d e p e n d e n t chairmanship of Sir Arthur Salter,
whom I selected after consulting the Prime Minister) to e x p l o r e
these questions.
It will be within the recollection of seme of my
colleagv.es that demands were made by s e v e r a l o t h e r i n t e r e s t s t o
be included in the Conference.
In the House of Lords
L o r d Lcvat p r e s s e d a claim for representation of the highway
authorities,.
The vaz ious orgsnisations of traders (including
t h e F e d e r a t i o n cf B r i t i s h Industries, the Chambers of Commerce,
the N a t i o n a l Federation of Iron and Steel Manufacturers and the
M i n i n g Association) and ether competitive forms of transport,
such as the canals and coastwise shipping, had all raised t h e
p o i n t of special representation, but I was b o u n d to a n s w e r t h e &
a l l l y pointing out that, if I included one, I should s o
enlarge
the Conference as to turn it into a kind of Transport
Parliament from whose deliberations no practical r e s u l t s were
likely to follow.
This answer w a 3 a c c e p t e d , by all the i n t e r e s
concerned, especially in v i e w o f my assurance that before a n y
decision was taken all interests would be given the f u l l e s t
opportunity of expressing their views upon any proposals or
findings vhich the R o a d - R a i l Conference m i g h t reach,,
I met th
point of the highway authorities to their satisfaction, w i t h o u t
reopening the question of direct representation on the C o m m i t t e
by inserting a preamble in the reference in order to d e f i n e ita
scope and.object.
Regarding the whole matter as urgent, I instructed
the Conference to report by the end o f J u l y ,
so that t h e r e shcu
be ample time for any further consultations that may be necessa
and for full consideration by the Cabinet o f all the i s s u e s
arising well in a d v a n c e o f the next session of Parliament,,
The Conference has conformed to this time-table and
presented a moot valuable and unanimous report, which I have
published and which I have sent t o all the representative
associations of l o c a l
authorities
?
traders, motor users and
trade unions concerned, with a request that any observations
they may w i s h to make shall reach me not later than the
JOth S e p t e m b e r o
I annex a s u m m a r y cf the R e p o r t ( A p p e n d i x l )
c
I propose to discuss at
scheme of r e v i s e d
once with the Treasury
t a x a t i o n of heavy goods v e h i c l e s
unanimously hy t h e Conference
principle
t h i s recommendation w i l l
Chancellor
to
and assume t h a t
corumend i t s e l f
to
in
the
of t h e E x c h e q u e r and t o t h e Government a s a w h o l e .
As r e g a r d s t h e s c h e m e o f
l i c e n s i n g of goods
v/hich i s recommended b y t h e C o n f e r e n c e
Appendix I I ,
I s h o u l d be g l a d of
i n framing which I should,
criticisms
recommended
as j u s t and necessary
e s t a b l i s h a f a i r b a s i s of c o m p e t i t i o n ,
the
and i s s e t
authority
I think that
give c o n s i d e r a t i o n to
out
of c o u r s e , h a v e r e g a r d
to
I
if
a
Bill
any
have
t h e Cabinet might f i n d
the proposals
in
to prepare
o r s u g g e s t i o n s made b y t h e i n t e r e s t s
consulted.
vehicles.
it
easier
t h e y saw them i n
the
c o n c r e t e f o r m of
v.
a B i l l which could be examined i n d e t a i l
t h e Home A f f a i r s
Committee.
5*
F u r t h e r p o o l i n g of
companies.
I have already
arrangements covering a l l
r e c e i p t s between
consented to
the t r a f f i c
London, Midland and S c o t t i s h
Railway Companies,
Cabinet
application for
an i m p o r t a n t
and t h e London and N o r t h
I expect to
explained to
receive a
and t h e G r e a t W e s t e r n R a i l w a y
I s h a l l b e b o u n d t o o r d e r an i n q u i r y i n t o
as in
the p r e v i o u s c a s e , but
found
acceptable
realised,
since,
any such
the
Eastern
the
London,
Companiesapplication
I hope t h a t t h e p r o p o s a l s w i l l
a s t h e Royal Commission on
a r r a n g e m e n t s of t h i s k i n d a r e i n e v i t a b l e
t h e i r diminished resources for
giving
be
Transport
if
r a i l w a y c o m p a n i e s a r e t o s e c u r e maximum e c o n o m i e s a n d
t h e w a s t e of
pooling
similar
a pooling arrangement between the
Midland and S c o t t i s h
by
railway
competitive between
in the circumstances
i n C P . 264(32).
the
to
the
avoid
public
service,,
64
Highway E x p e n d i t u r e .
It
is a question whether
p o l i c y r e c e n t l y p u r s u e d i n making g r a n t s
has had sufficient
the
from t h e Road Fund
r e g a r d to t h e c o - o r d i n a t i o n of r a i l w a y
and
294
I
road transport and has not in its practical result (though not
in intention) gone too far to facilitate and accelerate the
transference of heavy long-distance traffic from the railways
to the roads.
For many years past the highway policy of the
Ministry of Transport has unfortunately been deflected by the
spectre of unemployment, which has led Government after
Government to press for the initiation of such road works as
can most readily be put in hand, employ the maximum volume of
labour and anticipate, perhaps substantially, traffic needs.
V/hile it cannot fairly be said that the Road Fund has
been applied to schemes not possessing real traffic
justification, immediate or prospective, or that there has
been a policy of subsidising mere relief works out of the
Fund, there can be little doubt that the trunk road and
similar programmes since 1 9 2 4 have been a direct encouragment
to long-distance road transport.
I propose to review the
vairious purposes to which we make grants, and possibly to give
them a somewnat different order of priority in relation to a
general economic policy.
Y/e have created recently a very
large volume of capital assets in the form of drastically
remodelled and improved main roads.
It may be that we shall
have to devote a larger portion of our resources to the
maintenace of our existing roads and their gradual
,
reconditioning, with a view to keeping the whole network of
our minor roads in the most efficient state for the purpose of
local distribution by motor transport conducted in mechanical
units of reasonable weight and dimensions.
It may be wise to
call a halt to the provision of routes largely parallel to the
railway lines and adapted to taking the very heaviest types of
road vehicle.
I propose to consult the highway authorities
especially on this aspect of the matter.
In this memorandum I have not thought" it ne-cessary
"
to refer to means of transport other than road and rail.
That is not to sas^ that there is nothing to consider except
in regard to rail and road traffic.
the question of the Canals.
There is, for example,
But it can hardly he said that
either coastwise shipping, or harbours and docks or even the
canals, present any equally pressing problems from the point
of view of co-ordination.
(The position of the tramways -
Whether municipal or company - as regards competition is
reasonably safeguarded by the Road Traffic Act, 1 9 5 0 ) .
1 Summary
To sum up, the possible lines of policy for the
further co-ordination of rail and road traffic appear to be as
follows:­
passenger Transport.
1.
Legislation giving effect to the proposals of
the London Passenger Transport Bill.
2.
Adherence to the policy of co-ordinating passenger
road transport laid down in Part IV of the Road
Traffic Act, 19^0* coupled with the efficient
enforcement of the provisions of that Act in
regard to speed limits and conditions of
employment.
Goods Transport.
3.
4.
Enforcement of the provisions of the Road Traffic
Act, I 9 3 O , in respect of the speeds and loading of
goods vehicles, and of conditions of employment in
connection therewith.
'
' - '
'
y *
I '
The institution of a system of licensing goods vehicles
in accordance with the unanimous recommendation
of the Road-Rail Conference.
General.
5.
A revision of the incidence of taxation with a
view to an adjustment which would more closely
relate the share borne by heavy commercial vehicles
to the use which they make of the roads.
6.
Conservation of highway expenditure by restricting
the use of the unclassified roads to mechanical
units of suitable size and weight.
We cannot
afford to follow the principle of making every roac
suitable for every vehicle.
7.
3 0 s o o n a s t h e R o a d F u n d i s i n a p o s i t i o n t o make
g r a n t s f o r f u r t h e r improvements and development
o f t h e highwajr s y s t e m , a d e t e r m i n a t i o n of t h e
p r i o r i t j r t o h e a c c o r d e d t o v a r i o u s t y p e s of
scheme, w i t h due r e g a r d t o t h e p r o p e r f u n c t i o n s
of t h e r a i l w a y s and the r o a d s .
8.
The i n s t i t u t i o n of p o o l i n g s c h e m e s "between t h e f o u r
amalgamated r a i l w a y companies, t o g e t h e r w i t h the
e x p l o r a t i o n o f f u r t h e r o p p o r t u n i t i e s f o r economy
i n c l u d i n g t h e i n t r o d u c t i o n of h i g h c a p a c i t y m i n e r a l
wagons.
In. c o n c l u s i o n ,
emphasise
a whole.
V/e s h o u l d ,
say t h a t
attaches
p o l i c y and i t s
t h e Government
of c o n s i s t e n t
i s viewing
in
translation
into
1952.
practice.
P.J.P.
its
if
by
we
current
transport policy
i m p o r t a n c e t o t h a t b r a n c h of
(Intd)
22nd A u g u s t ,
assisted
a c t i o n o f some k i n d i s r e q u i r e d ,
problems in the l i g h t
it
I am s u r e , b e g r e a t l y
p r o g r e s s i n t h e many d i r e c t i o n s w h e r e ,
admission,
were a b l e t o
that
to
t h e i m p o r t a n c e of v i e w i n g our t r a n s p o r t p r o b l e m
making e f f e c t i v e
general
I may p e r h a p s h e a l l o w e d
and
economic
as
APPENDIX I
SUMMARY OP REPORT
OP
CONFERENCE ON RAIL AND ROAD TRANSPORT.
The Report of the Conference on Rail and Road
Transport, which received its Terms of Reference from the
Minister of Transport on 1 1 t h April, 1 9 3 2 , was signed on
2 9 t h July and published on 1 7 t h August.
The Members of the Conference (with the exception of
Sir Arthur Salter, K.C.B., the independent Chairman appointed
by the MiniBter) represented in equal proportions the
interests immediately concerned in the operation of goods
transport by rail and by road.
The Report makes recommendations which are in all
cases unanimous.
The questions covered are:­
(a)
the incidence of highway costs;
(b)
licensing and control;
(c)
certain other matters affecting "division of function
betv/een road and rail.
PART I;
INTRODUCTORY.
The first part (Paragraphs
) gives a general
description of the recent evolution of motor transport;
transformation of the road system;
the
and the problem of road
and rail competition.
The Conference considers that the relative contributions
of the different classes of motor vehicles need correction and
that for certain classes of commercial g:cc.e vehicles n e e d to b e
)
f)flO
6 "JO
increased.
Extravagant
entertained
this
as to the
e x p e c t a t i o n s must n o t ,
effect
of
he
such increased t a x a t i o n ,
or
combined w i t h a d d i t i o n a l r e g u l a t i o n s
traffic
to the
railways.
The p r e s e n t
the fact
that
(Paragraph
In o t h e r words,
essential
in the last century,
would h e u n d e s i r a b l e
r o a d s and d e p r i v e t r a d e
transport.
due t o t h e g e n e r a l
c a u s e s of l o s s ,
trade
offer
to the public;
losses
to d i v e r t
these
Against
(Paragraph
the
their
28).
can o n l y o f f e r
an
dealing
costs
t h e p u b l i c and
other
forms of r o a d t r a f f i c
by
29)*
INCIDENCE OF HIGHWAY COSTS.
The C o n f e r e n c e
is
in full
agreement
as to the
p r i n c i p l e s which should govern the d e t e r m i n a t i o n of the
upon commercial motor t r a n s p o r t .
should pay i t s f a i r
commercial
charges
a s k no more t h a n t h a t
s h a r e of
t h e y u s e a s t h e i r permanent way.
main
( P a r a g r a p h j54.).
The r a i l w a y r e p r e s e n t a t i v e s
not ask that
part
major
i n t h e i n c i d e n c e of highway
u s e r s of t h e r o a d a g a i n s t u n d e s i r a b l e
transport
the
themselves
c a u s e s of l o s s by
and i n a d e q u a c y of t h e r e g u l a t i o n s t o p r o t e c t
th^
increasing
they can
recommendations t h e Conference
PART I I :
in
two
and f o r t h e r e s t must d e a l w i t h
(Paragraph
and
and t h e o t h e r t e m p o r a r y ,
s h a r e of a g e n e r a l l y
with any e x i s t i n g u n f a i r n e s s
is
the
convenience of
depression.
a l l e v i a t i o n of one o f t h e s e p r i n c i p a l
to
t r a f f i c hack from
is alsp
a n d t o t h e new f a c i l i t i e s
goods v e h i c l e s .
due
railways,
The r a i l w a y s p o s i t i o n
in the a p p r o p r i a t e manner.
In i t s
in part
t h e motor v e h i c l e
and i n d u s t r y of t h e
r a i l w a y s must l o o k t o t h e i r
of t r a d e
traffic
is
a r e no l o n g e r i n d i s p e n s a b l e
t h e one p e r m a n e n t
total
2j).
c e r t a i n s e r v i c e s of t h e
to attempt
of
hack
and e s s e n t i a l l y more economical t h a n
railways.
new f o r m o f
in forcing
s i t u a t i o n of t h e r a i l w a y s
f o r many c l a s s e s o f
both more c o n v e n i e n t
it
however,
the cost of the
roads
The r o a d r e p r e s e n t a t i v e s
road t r a n s p o r t
should pay l e s s
this
than
do
its
fair
s h a r e of t h e c o s t o f t h e r o a d s o r s h o u l d b y so d o i n g
any o t h e r d e v e l o p m e n t
public
interest.
than that
(Paragraphs
which i s economic and i n
the
35-36).
The C o n f e r e n c e h a d t o r e c o m m e n d ,
total
attain
therefore,
a n n u a l sum w h i c h i s p r o p e r l y t o b e a l l o t t e d
what i s
to
m e c h a n i c a l l y - p r o p e l l e d v e h i c l e s a s a whole a n d t h e n what i s
just
incidence a s between the d i f f e r e n t
At p r e s e n t
classes
road u s e r s enjoy the very
" l e g a c y of t h e p a s t "
work of
transformation
make a l l o w a n c e
for
during t h i s
that
is,
of t h e
roads.
After
of
existing
e x p e n d i t u r e on
But i t
"community
l o n g d i s c u s s i o n t h e s e two f a c t o r s ,
and r e q u i r e d on o p p o s i t e
therefore,
that
each
but
include future
t h e s e t w o i t e m s of
use"
the
magnitude.
on t h e u n d e r s t a n d i n g t h a t
annual
e x p e n d i t u r e whether out of revenue o r
t o e x c l u d e any i t e m i n r e s p e c t
by
incapable
s i d e s of
i n o r d e r of
to
and
road expenditure should be calculated as described l a t e r
to
the
is necessary
except through r a t e s
seemed to a p p r o x i m a t e c l o s e l y
I t was a g r e e d ,
37).
substantial
f o r w h a t i s commonly t e r m e d t h e
exact calculation
account?
era.
the
t h e o t h e r u s e s t o which t h e r o a d s a r e put
t h o s e who make n o p a y m e n t t h e r e f o r
taxes;
(Paragraph
i n r e s p e c t of b o t h t h e r o a d s y s t e m
b e f o r e t h e motor e r a and of t h e heavy c a p i t a l
the
(so
loans
of t h e s e r v i c e of p a s t
"community u s e " on t h e o n e h a n d a n d
of t h e p a s t " on t h e o t h e r might f a i r l y b e r e g a r d e d a s
as
loana)
"legacy
cancelling;
j
each o t h e r .
(Paragraphs
After
years,
c o n s i d e r a t i o n of t h e a c c o u n t s of t h e l a s t
the fairest
b a s i s of
38-50).
figure
to represent
five
annual expenditure
as
a
a scheme of a l l o c a t i o n seems t o t h e C o n f e r e n c e t o b e
net figure
of £60 m i l l i o n s t o a l l o c a t e
of m e c h a n i c a l l y - p r o p e l l e d
Seeking c r i t e r i a
vehicles.
(Paragraphs
of a l l o c a t i o n of
i n any sense t h e a c t u a l methods of
determined,
among d i f f e r e n t
51-5^).
total costs
collecting
the
sums
t h e Conference h a s examined a l t e r n a t i v e
proposed for the purpose.
(Paragraphs
55-56).
classes
and n o t
so
systems
a
I t was s u g g e s t e d ,
cent,
of t h e
total
for
example,
contribution
that
some 8 0
required should be
b y m e a n s o f a s h i l l i n g d u t y a g a l l o n on p e t r o l ,
being allowed for
in reduced licence
duties
a g g r e g a t e t o p r o d u c e t h e r e m a i n i n g 20 p e r
There would be g r e a t
came t o
it
of 20 p e r c e n t ,
s o l l e c t i o n i n t h e form of
a general
felt
The
in the f i n a l
of t h e d i f f e r e n t
At t h e
of v e h i c l e s ,
determines the appropriate
by a s c e r t a i n i n g
on a
weight
conclusions,
distribution
class
of t h e
is,
"ton-mileage"
which
t o b e made b y e a c h
class
of £ 6 0 m i l l i o n
of v e h i c l e s .
distance run,
65).
the
mileage
o f £6C m i l l i o n
agreed without
the
average
These
reserve
laden
agreed
vehicles
t o work out what would be
on a s t r i c t
(Paragraph
of
63).
in each c l a s s .
havecenablcd i t
was
employed
a criterion
reached conclusions,
consumed,
­
consumption
c o m b i n e d w i t h t h e e x a c t l y known n u m b e r o f
in each c l a s s ,
for
and has been
the t o t a l
(Paragraph
as to the average
and p e t r o l
this
the
t h i s by t h e e s t i m a t e d
and d i s t r i b u t i n g
according to these r e s u l t s .
i n any c a s e ,
measure
62).
that
contribution
multiplying
The C o n f e r e n c e
of
and
s y s t e m of a v e r a g e s t h o l a d e n t o n n a g e
vehicles in the c l a s s ,
they cover in a y e a r ,
of v e h i c l e s ,
same t i m e p e t r o l
c o n s i d e r e d was t h a t
classes
a defective
of t h e t o t a l c o n t r i b u t i o n
( P a r a g r a p h s 59 -
A second b a s i s
measure
vehicles
c o r r e c t e d by
element in a c r i t e r i o n
proposal.
Conference,
graded licence duties representing
road franchise.
to be a useful
is
classes
t o an e x t e n t which would n o t b e a d e q u a t e l y
reservation
the
petrol
while an e x c e l l e n t
t h e same g e n e r a l w e i g h t a n d d e s c r i p t i o n ,
and wear b y d i f f e r e n t
on
cent.
f o r v a r y i n g u s e and wear of t h e r o a d s by d i f f e r e n t
of v a r y i n g u s e
factors
calculated
advantages in taking
the conclusion t h a t ,
obtained
other
consumption as the main c r i t e r i o n of i n c i d e n c e .
however,
per
ton-mile basis for
the
eaoh
Off
1 X
-
5
The C o n f e r e n c e
-
consider,
however,
that
a
ton-mile
c r i t e r i o n w o u l d g i v e r e s u l t s w h i c h w o u l d n e e d some
a t b o t h ends of t h e s c a l e
allocation based equally
and concluded t h a t
on t o n - m i l e a g e
would be t h e most a d e q u a t e g e n e r a l
T h e mean o f t h e r e s u l t s
consumption" c r i t e r i o n
c r i t e r i o n was t h e r e f o r e
made f o r
and t h a t
than for
heavier vehicles,
of t h i s
"ton-mileage"
of t h i s
combination
combined
goods
the
the
some f u r t h e r
a somewhat g r e a t e r
correction
allowance
should
of t h e r o a d s t
e x t r a wear and t e a r
(Paragraphs 73 -
agreement,
that
the
b u t by no
the
other
74).
the final
t h e £60 m i l l i o n
t h e f o l l o w i n g p r o p o r t i o n s among
c o n c l u s i o n was
reached,
should be a l l o c a t e d
in
mechanically-propelled
vehicles:­
(a)
£23^ m i l l i o n t o commercial goods
(b)
£36^ m i l l i o n t o a l l
other
propelled vehicles.
vehicles:
mechanically­
(Paragraph
75).
T h i s sum - a b o u t £2-g- m i l l i o n m o r e t h a n t h e
y i e l d of l i c e n c e
vehicles -
and p e t r o l
d u t i e s from commercial
involves considerable
t o b e made b y c e r t a i n c l a s s e s .
class
is to bear i t s
(Paragraph
77).
fair
be
one
caused by
a r e t o b e f o u n d among t h e g o o d s v e h i c l e s a t
In the circumstances,
in full
69
"petrol
of w h i c h a c o n s i d e r a b l e p r o p o r t i o n ,
end of t h e s c a l e .
68 -
mechanically-propelled
speed and u n l i m i t e d f r a n c h i s e
end of t h e s o a l e
means a l l ,
other
came t o t h e c o n c l u s i o n t h a t
the
(Paragraphs
72).
On c l o s e e x a m i n a t i o n
seemed r e q u i r e d ,
consumption
£23,847,544 t o commercial
( P a r a g r a p h s 70 -
Conference
formula.
The e f f e c t
and £36,152,446 t o a l l
vehicleso
and p e t r o l
and t h o s e g i v e n by t h e
c r i t e r i o n would be t o a l l o t
vehicles,
a s y s t e m of
g i v e n by t h e
taken.
correction
increasesin
This i s
s h a r e of r o a d
the
present
goods
contributions
inevitable
expenditure.
is
each
The C o n f e r e n c e
consider,
however,
that a
ton-mile
c r i t e r i o n v / o u l d g i v e r e s u l t s w h i c h w o u l d n e e d some
a t "both e n d s o f t h e s c a l e a n d c o n c l u d e d t h a t
allocation based equally
on t o n - m i l e a g e
a s y s t e m of
and p e t r o l
would b e t h e most a d e q u a t e g e n e r a l f o r m u l a .
T h e mean o f t h e r e s u l t s
consumption"
c r i t e r i o n v/ould b e t o a l l o t
vehicles,
The e f f e c t
(Paragraphs
70 -
the
e n d of t h e
and t h a t
than for
heavier vehicles,
combined
the
some f u r t h e r
correction
a somewhat g r e a t e r a l l o w a n c e
t h e e x t r a wear and t e a r
end of t h e
scale.
agreement,
that
the
the final
among
other
74).
c o n c l u s i o n was
reached,,
t h e £60 m i l l i o n should be a l l o c a t e d
the following proportions
the
but by no
a r e t o b e f o u n d among t h e g o o d s v e h i c l e s a t
In the circumstances,
in
mechanically-propelled
vehicles:­
(a)
£23-g- m i l l i o n t o c o m m e r c i a l g o o d s
(b)
£36^ m i l l i o n t o a l l
other
propelled vehicles.
T h i s sum - a b o u t £24
y i e l d of l i c e n c e
vehicles -
and p e t r o l
is to bear i t s
(Paragraph
77).
fair
mechanically­
(Paragraph
75).
d u t i e s from commercial
t o b e made b y c e r t a i n c l a s s e s .
class
vehicles:
m i l l i o n more t h a n t h e
involves considerable
share
be
one
caused by
of w h i c h a c o n s i d e r a b l e p r o p o r t i o n ,
( P a r a g r a p h s 75 -
should
of t h e r o a d a t
means a l l ,
in full
goods
mechanically-propelled
speed and u n l i m i t e d f r a n c h i s e
scale
of t h i s
of t h i s c o m b i n a t i o n
came t o t h e c o n c l u s i o n t h a t
seemed r e q u i r e d ,
"ton-mileage"
72).
On c l o s e e x a m i n a t i o n
Conference
other
69)
"petrol
£23,847,544 to commercial
and £36,152,446 to a l l
vehicles.
made f o r
given by t h e
taken.
consumption
( P a r a g r a p h s 68 -
c r i t e r i o n and t h o s e given by the
c r i t e r i o n was t h e r e f o r e
correction
increasesin
the
present
goods
contributions
This i s i n e v i t a b l e i s
of road
expenditure.
each
obsolete
The p r e s e n t b a s i s
of c o n t r i b u t i o n
and i n a d e q u a t e .
More t h a n h a l f
is in certain
respects
the contributions
made
b y t h e o w n e r s o f m o t o r v e h i c l e s i s now i n t h e f o r m o f a n 8 d . p*ar
gallon petrol
escape t h i s
duty.
Steam, e l e c t r i c
duty.
(Paragraph
weight.
that
- but at present
The s c a l e
it
stops at
This gives a preferential
high road expenditure.
The C o n f e r e n c e
rightly
5 tons
of t h e l i c e n c e d u t i e s f o r
same f o r v e h i c l e s n o t
than
(Paragraph
the different
just
classes
79).
detailed
of
These d u t i e s are s u b s t a n t i a l l y
the
exceeding 3 tons unladen weight, but for
reasons indicated above,
vehicles - especially
are heavily
increased for
t h o s e w h i c h p a y no p e t r o l
duty and,
therefore,
licence
89).
The p r o p o s e d l i c e n c e d u t y h a s b e e n w o r k e d o u t f o r
c l a s s of c o m m e r c i a l goods v e h i c l e s by c a t e g o r y and w e i g h t
give the appropriate
total
present p e t r o l duty i s
The e f f e c t
for
the class
of t h i s
a c t u a l l y run to the extent
as regards the balance,
is that,
so a s
on t h e a s s u m p t i o n t h a t
within each c l a s s ,
to
the^
according to
individual
distance
t o w h i c h p e t r o l d u t y makes up t h e
r a i s e d by l i c e n c e d u t y ,
d o e s more t h a n t h e a v e r a g e of i t s
loses.
each
continued.
v e h i c l e s pay more or l e s s of t h e t o t a l
which does l e s s ,
the
heavier
make n o c o n t r i b u t i o n t o r o a d c o s t s e x c e p t t h r o u g h t h e i r
(Paragraph
unladen
involve
u n a n i m o u s l y r e c o m m e n d s new a n d
commercial goods v e h i c l e s .
duties.
heaviest
advantage to
t y p e of v e h i c l e w h i c h t h e e v i d e n c e shows t o
disproportionately
entirely
present
A 1 0 - t o n v e h i c l e p a y s no m o r e i n l i c e n c e d u t y
a 5-ton vehicle.
scales
the
t h e development of t h e
i n considerable numbers.
increases with tonnage
that
from t h e f a c t
of d u t i e s was f i x e d b e f o r e
t y p e of v e h i c l e
oil vehicles
78).
Another anomaly a r i s e s
scale
and f u e l
the vehicle
c l a s s g a i n s , and t h e
total;
which
vehicles
In these circumstances the Conference
it
is
important
that
duty should remain as high as i t
(Paragraph
90).
HART I I I ;
The r a i l w a y s
system of
of
i s of
control
common c a r r i e r s
is at
present.
REGULATION AND LICENSING.
are subject
t o an e x t e n s i v e
and
r e g u l a t i o n and s u p e r v i s i o n .
especial
importance
the railways
Similarly,
c o n d i t i o n s of s e r v i c e
in regard to
to
such as t o g i v e very
It
competition
the railway
is agreed that
should take place
had,
therefore,
on t h e o t h e r hand of
effective
employees.
ought
t o b e more o n a n
liberty
for
proceed
the
recommending c e r t a i n p u b l i c
railway
safeguard
service.
9^)*
In general,
the Conference considers
that
to
t o w h i c h a s e r v i c e , w h e t h e r by r o a d o r r a i l ,
service the necessity for
some p u b l i c
safeguards
the
must
r e g a r d e d a s p a r t a k i n g o f t h e c h a r a c t e r o f a common
(Paragraph
equality.
to consider whether to
to be extended t o t h e o p e r a t i o n of motor t r a n s p o r t
extent
and
t h e c o n d i t i o n s upon which
i n t h e d i r e c t i o n of a s k i n g f o r g r e a t e r
(Paragraph
person
93)*
The C o n f e r e n c e
or,
As
carry
the arrangements as to wages
are
system
rates.
are under obligation
p r o t e c t i o n of t h e i n t e r e s t s of
(Paragraph
often
This
g o o d s a t r a t e s w h i c h do n o t d i s c r i m i n a t e b e t w e e n o n e
and a n o t h e r .
that
t h e p r o p o r t i o n t o h e o b t a i n e d , b y means of
the petrol
meticulous
considers
be
carrier
arises.
95)*
I n t h e m a t t e r o f r a t e s w h e r e i-t m i g h t s e e m p r i m a
facie
that
whole
a r e a of t h e
as regards
the
existence
of
railways'
effective
w o r k make t h e s y s t e m i n
railway rates unnecessary,
i s recommended.
Capricious
competition over
no f u n d a m e n t a l
discrimination
i t may i n some c a s e s s e c u r e e x t r a
in rates,
r e c e i p t s and i n
the
force
change
while
others
extra traffic not otherwise obtainable, is no satisfactory­
principle for common carriers to work upon, either from the
point of view of the transport industry itself or of the trade
and commerce served.
Indeed, when a common carrier service
is organised in large units, the commercial obligation of fair
treatment
towards customers must, in practice, prevent such
discrimination.
(Paragraph 9 ^ ) *
The same is true as regards wages and conditions of
Service.
The less favourable conditions obtaining over a parjr
of the haulage industry are due to the greater number of individua
units in that industry.
In justice to the employees and also
in the interests of both of the railways and of those hauliers
who are struggling to maintain satisfactory wage rates and
conditions of work, it is of the utmost importance that an end
should be put to the abuses in these respects which have so far
attended the organisation of the industry in so many small units.
(Paragraph 9 7 ) .
In addition, the Conference agrees that the public has
a right to be assured that the vehicles using the public roads
should be - and should be maintained - in a state of fitness.
This necessity has been recognised in the case of public service
(passenger) vehicles.
(Paragraph 9 8 ) *
For these reasons, the Conference considers
that some regulation of goods motor vehicles is necessary;
and that this regulation can be enforced only through a
licensing system.
The Conference agrees, without
hesitation, that all such vehicles should be required
to have licences which are conditional upon the observance
of proper conditions as to fair wages and conditions of
service, and the maintenance of the vehicles in ft state of
fitness.
(Paragraph 99)*
Any individual at present has an unlimited right
to enter the haulage industry, without any regard to the
pressure on the roads or to any existing excess of transport
facilities.
This unrestricted liberty is fatal to the
organisation of the industry in a form suitable to a carrier
service purporting to serve the public.
On the other hand
the Conference was equally impressed with the evil of any
system which would prevent trade and industry from securing
the form of transport which is best adapted to its ever
changing needs at the lowest practicable cost that can bo
obtained on a salutary basis.
(Paragraph 1 0 0 ) .
In these circumstances the Conference agreed upon a
scheme which is defined in specific recommendations
(Paragraph 1 0 1 ) .
-
The Conference makes a distinction, recognised by the
Royal Commission on Transport, between "hauliers" who, like the
railways, convey the goods of others and "ancillary users" who
own goods motor vehicles as ancillary to their commercial
undertakings.
(Paragraph 1 0 2 ) .
The Conference considers that both hauliers and
ancillary users should be subject to regulation, enforced through
the grant of licences, as regards fair wages and conditions of
service and the maintenance of their vehicles in a state of
J
fitness.
(Paragraph 10*),
In other respects, however, it is considered that
hauliers, with the right to carry the goods of the public, should
properly be subject to some measure of regulation not applicable
to ancillary users.
(Paragraph 10J?).
It is felt that the hauliers enjoying this right should
be an enterprise separately constituted as a bona fide business.
­
Overlapping of financial interests between hauliers and
61 0
ancillary users is inevitable in many cases, but the accounts
should be separate and the concerns legally separate.
Ancillai^
users conversely should, as the counterpart of the freedom
they enjoy, be prohibited from carrying any other goods other
than their own, except as regards vehicles confined to a radius
of 10 miles from their place of business.
(Paragraphs 106 ­
111).
In the case of hauliers, the Conference thinks that
the licensing authority may properly have regard to any such
excess in existing transport facilities as may make the grant
of a licence for the full number of vehicles asked for against
the public interest.
Any such restriction of the free normal
development of transport facilities must be applied with great
care;
it must reflect a general policy adapted, to the needs cf
different periods;
and it must be developed as a national
policy on consideration of all the interests involved, and
applied subject to a convenient and inexpensive machinery of
appeal, through local licensing authorities.
Por this
purpose, the Conference recommends the constitution of a
permanent Central Advisory Committee to advise the Minister sf
Transport as to the instructions which he should issue to the
local licensing authorities.
(Paragraph 1 0 7 ) .
In the case of ancillary users, however, the
Conference recommends that no restriction on these grounds
should be imposed.
Subject always to certain conditions,
(e.g., fair wages and conditions of service, etc.) it considers
that the industrialist and the trader should remain free to
utilise as many motor vehicles as they find their business
requires,,
With this safety valve, there is no cause to fear
that any form of semi-monspoly which may develop by a large
scale organisation of the haulier.)industry, or close relations
between that industry and the railways, will be against the
public interest,,
(Paragraph 1 0 8 ) ,
On the contrary, it would he to the great benefit o f UJ!
concerned if the relations between the different sections of the
transport industry became such that they were less concerned with
mutual competition than with the organisation of complementary
(Paragraph 1 0 9 ) .
function.
The Conference then recommends a definite scheme based
upon the foregoing principles.
(Paragraph 1 1 1 ) .
In the introduction of the above system the Conference
presumes that care would be taken to prevent unnecessary
disturbance and hardship,
It is considered, for example, that
all hauliers already in business, when the Conference was
appointed in March last, should without question receive their
first year's licence for the number (or equivalent tonnago) of
the vehicles employed by them at the time of the licence
application.
(Paragraph 1 1 2 ) ,
The Conference further recommends that operators should
be required to keep such records as will help to secure the due
observance of the prescribed conditions of maximum weight to bo
carried and hours of work;
that the licensing authorities shall
have the right of access to information as to the rates charged by
by an applicant;
and that, while the licensing system proposed
should be brought into immediate operation, the
Minister should
examine the question of publication and control of rates, in
consultation with the Central Advisory Committee.
117
-
(Paragraphs
119).
In many cases the heavier types of vehicles cause
excessive damage to the roads and involve disproportionate
expense to the highway authorities.
These authorities already
possess powers to secure the exclusion of specified types of
vehicles from certain roads.
The Conference contemplates that
if the heaviest type of vehicle should be utilised in increasing
n u m b e r s on c l a s s e s
of
roads which a r e c l e a r l y u n s u i t a b l e ,
much m o r e e x t e n d e d u s e of
necessary.
the powers r e f e r r e d
t o may b e
(Paragraph 1 2 0 ) .
PART I V ;
DIVISION OF FUNCTION AND GENERAL.
The C o n f e r e n c e
feels
that
t o some e x t e n t
these
are covered by the recommendations as t o the incidence
costs and licensing
practicable
control,
and doeo n o t c o n s i d e r
zo go much f u r t h e r
than
t h i s in
determining and p r e s c r i b i n g r e s p e c t i v e
121
-
a
questions
of
highway
it
the d i r e c t i o n
functions.
of
(Paragraphs
125)*
m
The C o n f e r e n c e r e c o r d s i t s
R o y a l C o m m i s s i o n on T r a n s p o r t
it
is not "in
diversion
af
the n a t i o n a l
agreement,
(Final Report,
interest
heavy goods t r a f f i c
I t a g r e e s i n recommending t h a t
from
roads",
of T r a n s p o r t
classes
should
of t r a f f i c
which
and which, having regard t o the c h a r a c t e r
from b e i n g
to go, are unsuitable for
transferred
in future
recommends t h a t he s h o u l d examine
the
further
the railways to the
the Minister
t h e commodity and t h e d i s t a n c e
haulage,
with
Paragraph 2 6 7 ) that
to encourage
obtain powers to p r o h i b i t by r e g u l a t i o n
are borne by r a i l
however,
to t h e r o a d ,
of
road
and
the question and take
the
a d v i c e of the C e n t r a l Advisory Committee.
The C o n f e r e n c e
divide i t s e l f
require
it,
determine,
conceives
that
between r o a d and r a i l
and the f a c i l i t i e s
"The f a i r e r
i n t h e main t r a n s p o r t
a s t h e demand of
mainly
that
through
and r a i l
public
the b e s t
the deliberate
transport
the f u l l
division
effort
B u t we
obtained
of t h o s e engaged i n
their
s e r v i c e s and g i v e
a d v a n t a g e s of c o m p l e m e n t a r y
(Paragraphs 1 2 7 - 1 2 8 ) .
sound.
of f u n c t i o n w i l l b e
to co-ordinate
it,
o f c o s t s w h i c h we reoommend
w i l l t e n d t o make t h e r e s u l t m o r e e c o n o m i c a l l y
believe
t h o s e who
o f f e r e d b y t h o s e who p r o v i d e
incidence
will
service".
road
the
^
In conclusion the Conference states that such a comprehensive
measure of agreement reached has necessarily been arrived at by a
process of give and take, and concessions on both sides.
"It is
expressed in a scheme of which each section is an integral and inter-*­
dependent part of the whole.
It must not be assumed that if one part
was rejected we should remain agreed upon the remainder.
Conscious,
therefore, that the rejection of one part of our scheme might endanger
the whole, we have taken special pains to avoid prejudice to absent
interests.
subjects
In view of this necessary interdependence of the various
we have dealt with we have tried to avoid any solution which
might be acceptable to ourselves at the expense of others not
represented.
The incidence of highway costs which we recommend, for
example, is not inconsistent with either a reduction, or a continuance,
or an increase of the charges now levied on private motorists.
Increase:,
in the rates to be levied on the class cf transport represented at our
Conference do not prejudice the interests of other road users or
either central or local revenue authorities.
Moreover, our scheme
does not deprive trade and industry of the practical convenience
afforded by the existing liberty of the ancillary user".
(Paragraph
133).
"As regards our specific calculations and assessments, it is
obvious that they are in the nature of the ca;3e based to a considerable
extent upon an appreciation of the importance of numerous factors upon
which individual judgment will differ.
Those who examine our
proposals primarily from the point of view of any one of the main
interests concerned will doubtless consider that we have given too
little or too much weight to specific factors.
But we venture to
suggest that the fact that a Conference, composed as ours is of
representatives of both railway and road transport, has been able to
make unanimous recommendations, gives a strong presumption that,
although we may have erred on this point or that, the scheme as a
whole may be regarded as affording a fair basis upon which the different
sections of the great inland transport Industries can develop".
(Paragraph 1 3 5 ) .
A p p e n d i x II,
111.
With this preface we make the following
recommendations:A. All owners of goods motor vehicles used on public
highways (both hauliers and ancillary users) shall hold
an operating licence.
Note.- No charge shall he made for this licence; each
motor owner paying all that should he
required of him in the iorm of his ordinary
revenue licence duty and through the petrol
duty.
B. The licence shall he conditional upon payment of
reasonable wages and observance of proper conditions of
service, in respect of the driver, and upon an
undertaking by the owner that the vehicles employed
under the licence are and will be maintained in a
proper condition of fitness.
Note.(i).- If any of the vehioles are found to be
not so maintained, the licence may be ax
once suspended in respect of such vehicles.
Note (ii).- It is contemplated that the proposed local
licensing authorities will ascertain and
publish the local standards of wages, etc.,
prevailing; and will be prepared to
consider evidence that the rates and
conditions applied by a particular applicant
for a licence are below this standard in
deciding whether to grant or renew the
licence.
No attempt has been made to work
out the precise method for enforcing this
principle, as this can be done better by the
Minister of Transport and Minister of
Labour.
Note (iii).- As regards fitness, it is not considered
that prior or periodical examination of
goods vehicles is necessary; but that any
vehicle might be examined and, if found
unfit, the licence in respect of it should
be withdrawn or suspended.
C. A plate (differing in colour for hauliers and ancillary
users) shall be affixed to each vehicle, giving the
^
number of the owner's licence and an individual number.
This shall (as in the case of public service
(passenger) vehicles now) be additional to the revenue
licence plate.
In applying for a licence the
applicant shall attach a list of the vehicles which he
desires to be licensed, giving particulars of the
registration numbers, unladen weights and maximum loads
(and these particulars should also appear on the
vehicle).
If a margin of vehicles is required for
permissible expansion during the licensing period, the
requirement shall be stated in the application, and
registration particulars and other information supplied
as the vehicles are brought into use.
? 0
l
b x
Note.- As appears "below, the statement of the number
of vehicles required "by an ancillary user,
while b e i n g utilized for record, would not
be questioned.
D. The licensing authority shall grant the licences
requested by a haulier except where the grant would be
in whole or in part a g a i n s t the public interest on
consideration'of t h e following factors
(i) any excess in t h e existing transport^facilities
suitable to meet the public /requirements to be
served by the applicant;
(ii) any actual or prospective congestion or overloading
of the roads;
(iii) the licensing authority shall be entitled to call
for and take into consideration particulars of
the c o n v i c t i o n s registered against t h e applicant
or his employees for the previous year i n
respect of offences in connection w i t h his road
transport vehicles; or of his bankruptcy;
(iv) the licensing authority shall act subject to such
directions as he may receive from t h e M i n i s t e r
Of Transport, who shall be. a d v i s e d f o r t h e
purpose by a new permanent Central A d v i s o r y
Committee of appropriate composition t o be set
up for the purpose;
(v) he shall publish in a suitable form periodical
s t a t e m e n t s of applications f o r new l i c e n c e s with
t h e d a t e b y w h i c h a n y memorandum o f o b j e c t i o n
must be f o r w a r d e d to h : u .
He s h a l l c o n s i d e r
s
^any Memorandum so received a n d m a y , at h i s
discretion, a s k for oral e v i d e n c e in s v t p p o r t or
answer to it.
But he shall n o t be p r e c l u d e d
from granting temporary interim licences.
E. An ancillary user shell be granted freely such licences
as he may request i o r the carriage of his own goods,
subject to the conditions specified in B and C but not
in D above.
The holder of an ancillary licence shall after due
notice be prohibited from carying any other goods than
nis own whether for reward or reciprocal service;
except as regards vehicles confined to a radius of
^0 miles from his place of business.
There shall be a right of appeal from the decisions of
the Local Licensing Authorities.
Note.- We consider that the Minister of Transport
should arrange a machinery of appeal on the
advice of the Central Advisory Committee
proposed in ' D" above.
We c o n s i d e r it of
great importance that this s h o u l d b e s u c h
as to avoid delay and in p a r t i c u l a r l e g a l
I
expense, the p r o c e d u r e b e i n g s u c h . , lor
e x a m p l e , aa t o w a k e the e m p l o y m e n t o f
c o u n s e l u n n e c e s s a r y and unsuitable.
f* ^ &
112.
In the introduction of the above system we presume- "
that care would be taken to give such notice, to frame the
regulations in such a way, and to make such arrangements, as
will prevent unnecessary disturbance and hardship.
We
consider, for example, that all hauliers already in business
(or ancillary users employing some of their vehicles partly in
haulage operations who apply for a haulier's licence for such
vehicles) when our Conference was appointed in March last
should without question receive their first year's licence for
the number (or equivalent tonnage) of vehicles employed by
them at the time of the licence application.
Similarly, we
consider that reasonable notice should be given before the
enforcement of the prohibition against ancillary users
carrying the goods of others for reward or reciprocal service.