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9. Recommendations on the Piracy Regulations and on the
measures for the suppression of piracy.
In these recommendations we omit all consideration of vessels not exceeding f
(a.)--Existing Regulations experimental.
The existing Piracy Regulations when originally passed were experimental in character. In the light of experience they have been only partially enforced though their form has not been amended. We think that it may be found more convenient to repeal the present Regulations and substitute others than to use them as a basis for amend-
ment.
(b.)-Recommended distinction between River Steamers and Ocean Steamers,
We recommend that a separate series of regulations should be drawn up for steamers trading to River ports or Macao (River steamers) and for steamers trading to sea-const ports (Ocean steainers). The conditions of ocean trade and river trade are as distinct as the general design of the steamers. Regulations applicable to the one are inapplic- able to the other.
(c.)-Recommended exemption of ocean steamers from the Regulations in certain circumstances.
With reference to ocean steamers we recommend a general exemption from all regulations in respect of (1) steamers equipped with wireless apparatus and carrying a non-Chinese crew, and (2) steamers equipped with wireless apparatus, of whatever uationality the crew may be, provided they do not carry more than 50 passengers of all classes.
(d.)-Construction. Proposed establishment of a committee to devise a scheme for each ship.
Under the heading of construction we recommend that the present regulations be abandoned and that no standard regulations whatever be imposed. We make this recommendation both for river steamers and for ocean steamers. Ships vary in design, size and purpose to such an extent that general regulations in practice must be relaxed until their usefulness tends to disappear. In place of standard] regulations we suggest that the constructional defence of each ship be worked out on the merits of each indivi- dual ship by a committee to be convened by the Harbour Master while the ship is in port. The committee which we have in mind might consist of the Assistant Harbour Master, (ex-officio chairman), an Assistant Superintendent of Police, a representative appointed by the owners and the Master of the ship. The scheme designed by this committee and approved by the Harbour Master would become the legal scheine of defence for the ship.
(e.)--(ieneral defensive measures: the same.
The same committee would also settle the general defensive measures, such as the disposition of the guards.
(f.)-Importance of co-operation between responsible authorities.
We anticipate from this proposal an increase of co-operation between the official authorities and the master, who, having the duty of carrying out the scheme adopted would in the ordinary course have a major influence in the discussion. The Assistant Harbour Master would be more particularly concerned with the construction of the ship and the Assistant Superintendent of Police with the guards, their duties and disposition. The extra work involved would have its compensation in additional efficiency, the result of co-operation. In our opinion it is of great importance to enlist the interest of the ship's officers in the defence of their ship. The defence of the ship should be their affair and the official authorities should figure as assisting them in perfecting it and carrying it out.
We think that this scheme can be necomplished without causing any delay to ships.
(9.)-Revision of the scheme of defence.
When the scheme for the ship has once been adopted no question of relaxation of any rules will arise. The scheme can be subject to revision by a similar committee convened by the Harbour Master for that purpose.
(h)-Recommendations for annual certificate of compliance with the Piracy Regulations on survey by the Government Marine Surveyor.
We recommend that an annual certificate of compliance with the scheme in the ship's construction be issued by the Government Marine Surveyor.
(4.)-General principles of defence.
We consider that in all regulations or schemes made for the prevention of piracy, attention should be concentrated on measures of actual defence of vital parts of the ship. It seems to us that the regulations which had for their object the segregation of passen- gers from each other or from the crew, the separation of passengers from their luggage or cargo, are irksome and of little use. Such regulations tend to interfere with the regulations for the safety of passengers as, in the event of Fire or collision, it is essential to be able to get the passengers into the boats with the greatest promptitude. We believe them also to be unworkable under local conditions of the trade of river steamers. In our view the main point is not to regulate passengers in normal times on board but to have the means at hand ready to defeat the outbreak of piracy if it should
occur.
The vital parts of the ship are for the present purpose the navigating bridge and the engine room. It may be suggested that the steering chain is a third vital point to be defended, but it is difficult to imagine any circumstances in which pirates will find it worth while to interfere with the steering chain until they have obtained control of the other two vital positions. We do not think it, therefore, worth while to insist by regulation upon any protection for the steering chain.
What may be possible in a scheme of defence will vary with each ship. Generally it will be desirable to create a citadel to be fortified, garrisoned and defended. When feasible the citadel should include the navigating bridge, the certificated officers' quarters, the wireless apparatus if any and the wireless operators' rooms, the engine room sky- light or exit on deck, the strong room, the guards' quarters, also officers' lavatory, etc. Passengers should generally be wholly excluded from the citadel by locked grilles. We find that in the past grilles have usually been fitted with padlocks. We consider this unsatisfactory and recommend that all grilles and the doors to the engine and boiler rooms be provided with spring locks which can be opened from the outside only by We regard it means of keys which should at all times be in the custody of the Master,
as important that the accommodation for guards should be inside the grilles.
Whether forward or aft this citadel and more particularly the navigating bridge itself should be protected by bullet proof dodgers in serviceable positions. We suggest that dodgers of metal plates with a one inch plank of hard wood between will be found effective.
Whether it be inside or outside the citadel we recommend that the doors of the engine and boiler rooms should be kept locked at all times while the ship is under weigh. The doors of the engine and boiler rooms should in new ships be in metal made in the manner of Venetian blinds allowing for the passage of some air but not for view through them. In existing ships where there are grille doors, metal plates should be laid on Wherever possible platforms to protect the engine room staff from being fired upon. spring locks should be included in the doors, inaccessible from outside with a handle ou the inside. The skylight or exit to the bridge deck should be protected also by a locked grille.
In our opinion the citadel once it is created by the Regulations, with suitable grilles and dodgers, is to be most efficiently defended by the use of firearms only. Barbed wire required by Regulation No. 3 to protect the bridge from access from below seems to be of little use in view of the great agility of the robber class. The steam hose is unserviceable, as a steam jet is ineffective at any range or against wind, and it is both We noisy and difficult to operate. It is likely to be as damaging to friend as to foe. do not recommend either that the steam hose should be replaced by a hot water hose. The latter needs a little time to commence, it is difficult to use and may only be operated for a short time without reducing the steam pressure in the ship's boilers.