1964 WESTERN AUSTRALIA I

Report of Royal Commission in relation to the safety of ships to 'which the Western Australian Marine Act, 1948-1962, applies and which proceed outside inland waters and those aboard them while at sea

3

INDEX TO REPORT

Pages

CHAPTER I. History and Procedural Aspects of the Royal Commission 7-9

CHAPTER II. Introductory, Geographical and Biological 9-12

CHAPTER III. Causes of Casualties to Vessels 13-17

CHAPTER IV. Causes of Casualties and Possible Remedies 17-28

CHAPTER V. The Terms of Reference 28-58

Part I.-Reference (a) 28-36

Part 2.-Reference (b) 36-39

Part 3.-Reference (c) 39-40

Part 4.-Reference (d) 40-44

Part 5.-Reference (e) 44-48

Part 6.-Reference (f) 48-56

Part 7.-Reference (g) 56-58

OHAPTER VI Conclusion 58-59 4

INDEX TO RECOMMENDATIONS Page Anchorages- l\Injar 18, 51 Lesser 51, 52 Illumination of . 28 Speed in . 28 Anchors and Ropes 35 Auxiliary Propulsion 29, 29 Booklet of Instructions 18, 52, 53 Buoyancy 32, 34 Charter 'York 55 Charts 35, 39 Compasses and Compass Adjusters ....33, 35, 36, 39

Coxswain's Qualifications 39 Crew' Members, Training 39 Dangerous Equipment 35 Disqualification and Suspension 33, 37 Distress B'Iags-c-" N" and "C" 33 Dye Markers 33 Echo Sounder 35 Education and Certificate 39, 56 Evasion, Surveys, etc. 36 Ferries, Seagoing 54 Fire Extinguishers 27 First Aid 39 Flares 33 Harbour and River Craft 40 Helicopters 41 Heliograph l\Iirror 33 Hydrographic Surveys 38 Identification-s- Numbering 42 Photograph 34, 44 Inapection-e- at sea 33, 36 during Construction 29 Insurance 57, 58 Lead Line 35 Leading Lighte and Markers 38, 51, 52 Legal- Amendment Fisheries Act 33 Consolidation and Index 37 Definition H Navigable 'Vaters" 34 Interpretation 28, 37 Onus of Proof 37 Penalties. 37 Regulation Making Powers 28 Special Clerk 37 Suspension 33 Length of Boats-s-Limita 34 Liaison-Harbour and Light, Fisheries and Police Departments 33, 36, 41 Lifebuoys 35 Life J acketa 33 Life Rafts 32, 34 Lighthouses 49 Liquid Fuels 27 Load Limits 34, 38 Local Limits and Hours of Operation 36 Log Book 36 Manning of 'wntchea 35 Marking of Equipment 34 Moorings 18 Morse Code ,jO 5

INDEX TO HECOMl\IENDATIONS-continued Page Navigation Equipment 35 Notice of Survey 36 Obstruction of Sealance, etc. 27 One Man Boats 34 Ordering Boats to Shore 33, 36 Outriggers 35 Overloading 25, 34, 38 Patrol Boats- Ocean-going 36, 41, 43 Trailer-borne 33, 41, 43 Pelorue Compass 35, 37 Photographs of Boats 34 Plans-Submission and Approval ... 29, 38 Plaque on Pleasure Boats 33, 34 Plastic Fuel Lines 27 Pleasure Boats ... 29, 32, 33, 34 Power Lillita on Engines 34 Pumps. 35 Quality of Equipment 55 Rafts 32, 34 Rations 35 Rocket Signals and Flare-s . 33, 36 Search and Rescue-s- Extra Plane .. 40, 41, 43, 44 Identification 34, 43, 44 Local Committees 41, 43 Sailing Plan 42, 43 Use of Patrol Vessels 36, 41, 43 Sea Time-Recording 39 Self-draining Cockpits 35 Slipwaye and Jinkers (see Anchorages). Smoke Signals 33 Spare Parts 36 Standardisation of Equipment 32, 33, 55 Staff- Harbour and Light Department­ Clerical 36,37,39 Compass Adjusters 36 Inspectors 36, 39 Naval Architect .... 25, 38 Patrol and Survey Vessels 36, 30 Report by Manager 39 Surveyors 36, 39 Surveys-on Slipways 34 Suspension of Licences 33, 37 Tools '" 36 Vehicles 37, 38 Ventilation 27 Verey Pistol 33 Views of Persons Affected 47, 48 \Toluntary ~nforcenaent 53 Wireless Telephony- General .... 34, 42, 43 Education in 39 Limited Shore Stations '12, 43 on Patrol Boats 50 6

LIST OF APPENDICES. A. List of Witnesses. B. List of Exhibits. C. Photographs- Fig. 1, Fisheries-block plan. Fig. 2. Fisheries-white crays, Fig. 3. Fisheries-others. Fig. 4. Mandurah newspaper. Fig. 5. Float plan. Fig. 6. Boat Harbours. N.S.W. Fig. 7. Boat Harbours, N.S.W. D. List of Casualties-Pleasure Boats. E. Compasses-Captain J. Watson's submissions. F. Lighthouses-Captain D. P. Piggford's schedule. G. Taxation concessions. ROYAL COMMISSION INTO THE SAFETY OF VESSELS

To His Excellency Major General Sir Doug­ Court action thereunder, having re­ las Anthony Kendrew, Knight Com­ gard to present staff and legal re­ mander of the Most Distinguished Order quirements, and what further staff of Saint Michael and Saint George, Com­ and facilities (If any) should be panion of the Most Honourable Order of made available to the Department the Bath, Commander of the Most Excel­ for such purposes; lent Order of the British Empire, Com­ panion of the Distinguished Service (c) the requirements and standards of Order, Governor in and over the State qualifications for masters, mates, of Western Australia and its Depend­ engineers, marine motor engine ancies in the Commonwealth of Aus­ drivers and coxswains' certificates, tralia. respectively, and any improvements considered to be desirabie; May it please Your Excellency. (d) the adequacy of the present organ­ 1. By a commission under the hand of isation and facilities for the search His Excellency the Governor dated the 18th and rescue of persons missing at sea day of March, 1964, I was appointed to be from such ships and any improve­ a Royal Commission. ments considered to be desirable; 2. The terms of appointment as published (e) the attttude to, and views on, the In the Government Gazette of the 20th foregoing matters of those affected March, 1964, are as follow:- by such legislation and its enforce­ ment; and ROYAL COMMISSION. (f) generally into the safety of such

WESTERN AUSTRALIAt } By His Excellency Major-General Sir Douglas ships and those aboard them while TO WIT, Anthony Kendrew, KnIght Commander of the Most 01stll19ulsMd Order of Satnt Michael and at sea, and recommendations for or DOUGLAS ANTHONY Saint George, Companion of the Most HOMU,­ in regard to legislation, organisation, KENDREW, able Order of the Bath, Commander of the Governor. Most Excellent Order of the Brltlsh Empire, control, facilities, education or other [LS.l Companion of the Dlsllngulshed Service Order, matters to provide or Improve meas­ ccvemcr In and over the State of Western Australia and Its Dependancles In the Com­ ures for such safety moowealth of Australia. To William John Wallwork, Esq. of 15 Blrd­ and I hereby declare that by virtue of this wood Parade, Nedlands, In the State of Commission you may in the execution hereof Western Australia, Stipendiary Magis­ do all such acts, matters and things and trate: exercise all such powers as a Royal Commis­ I, the said Governor, acting with the advice sion or the Chairman or members of a Royal and consent of the Executive Council do Commission may lawfully do and exercise hereby appoint you WILLIAM JOHN WALL­ whether under or pursuant to the Royal WORK to be a Royal Commission to enquire Commissioners' Powers Act, 1902-1956, or Into and report upon the following matters, otherwise. in relation to ships to which the Western Australian Marine Act, 1948-1962 applies and GIVEN under my hand and the Public Which proceed outside inland waters, that Is Seal of the said State, at Perth, this to say- eighteenth day of March, One thous­ and nine hundred and sixty-four. (a) the adequacy of the present legis­ lation (including regulations there­ By His Excellency'S Command, under) concerning seaworthiness of and lifesaving equipment to be car­ DAVID BRAND, ried on the ships and any improve­ Premier. ments considered to be desirable; (b) the ability of the Harbour and GOD SAVE THE QUEEN Light Department effectively to ad­ minister such legislation and im­ In pursuance of that Commission I have provements thereto, and to take the honour to submit the following Report:

CHAPTER I.-HISTORY AND PROCEDURAL ASPECTS OF THE ROYAL COMMISSION. The Royal Commission was appointed on with all three crew members, of the fishing 18th March, 1964, and notice of the appoint­ vessel "Cathy Jo" somewhere west of Don­ ment published in Govemment Gazette No. gara, on or about 15th February, 1964. An 27, on 20th March, 1964. Cabinet had ap­ intensive search for the vessel by sea and air proved of the appointment on 10th March, had been carried out, but with no appreci­ 1964, following a series of events associated able result other than the finding at the with the disappearance and presumed loss, southern tip of Pelsart Island near Wreck 8

Point in the Houtman Abrolhos of an im­ Bunbury, 15th June; Busselton, 16th June; provised raft made of floats, identified as Augusta, 17th June; Albany, 23rd June; Wal­ belonging to the "Cathy Jo". On 18th pole, 24th June; Fremantle, 30th June, ist 'August, 1964, police skin divers recovered July and 2nd July; Perth, 6th July, 7th from the ocean off Green Island about 1 July, 8th July and 9th July; Pelsart Group, mile south of the main lighthouse, at Rott­ Houtman Abrolhos, 14th July and 15th July; nest, a large number of floats, with ropes, Geraldton, 16th JUly and 17th July; Kal­ secured to some wreckage of a boat. The barri, 18th July; Denham (Shark Bay), 20th wreckage was covered in marine growth and July; Carnarvon (Babbage Island), 21st July; appeared to have been in the water for a Onslow, 23rd July; Roebourne (Point Sam­ considerable time. The floats, ropes and son), 24th July; Esperance, 30th JUlY; wreckage were identified as part of the ves­ Denmark, 1st August; Fremantle, 6th August sel "Cathy Jo" and her equipment. No and lOth August; Perth, 18th August; Ger­ bodies were ever found and no Coroner's In­ aldton, 21st August; Perth, 14th September. quest has been held. It is not likely that The Commission sat privately in conference the cause of tile "Cathy Jo" disappearance on 7th April, 2nd September, 3rd September will ever be determined nor will her exact and 7th September at Perth. whereabouts at the time. Her loss followed losses of the fishing vessels "Linda" near On August 19th, 1964, Cabinet decided to Moore River, "Marlene Anne" near Escape extend the Terms of Reference to cover the Island, "Carol Lee" near Rottnest, "Kerry insurance of ships by adding reference B(g)" Lee" in a locality unknown, "Nor 6" near which reads: Shark Bay and "Wahini" near Kalbarri, all within a period of approximately three years. H(g) and, further, the insurance of such Altogether eighteen lives were lost from ships and recommendations for these vessels, The disasters gave rise to mis­ measures to provide a better cover­ givings concerning the seaworthiness of the age for those ships against all or vessels, the efficacy of the safety equipment maj or risks." carried or which should have been carried, the competence of the skippers and crews, On 25th August an advertisement was in­ the administration of the Harbour & Light serted in each of the two daily newspapers Department and the efficiency of tho search covering the new subject matter and invit­ and rescue organisation. ing interested persons to submit evidence. The Royal Commission was the outcome of In addition letters were sent to insurance Cabinet consideration of the situation exist­ companies, or to groups thereof, known to ing foilowing the disappearance of the "Cathy be dealing in marine insurance, seeking in­ Jail. The tenus of reference are phrased in formation. Evidence was received at sittings general words and the Commission was not of the Commission held at Perth on 14th required to find the cause of disaster in any September, 1964, the response being quite particular case even if it were now possible. satisfactory.

Mr. K. G. Forsyth, Manager, Harbour & During the course of the Commission, in Light Department, Fremantle, Mr. G. 'I'ravla, addition to the original advertisements in President, Geraldton Fishermen's Associa­ the local newspapers, interested Common­ tion, Mr. R. T. Napier, Chief Inspector of wealth and State Government Departments, Police, Perth, and Captain C. F. Woodcock, Yacht Clubs, Shire Councils, police Stations Marine Surveyor and Assurance Assessor, and the like, were informed by letter, tele­ Perth, were appointed as my Advisers. Mr. phone, personal interview and by printed Travia attended all thirty-six sittings of the notices of the sittings of the Commission, Commission; Mr. Forsyth attended all but with accompanying requests for evidence. one sitting; Mr. Napier attended all but three One hundred and seventy two persons gave and Captain Woodcock attended twenty-nine oral evidence before the Commission. It was sittings. Ail absences were with my know­ not found necessary to issue any subpoenas. ledge and consent. A list of witnesses in the order of their ap­ The Commission first sat at Geraldton on pearance before the Commission is annexed May 12th, 1964. Prior to that date, three as Appendix H A". notices were published in each of the daily newspapers circulated In Perth and a similar As no counsel was available immediately notice was published in the Sunday news­ from the Crown Law Department to assist paper and the Geraldton Guardian, inviting the Commission, the idea of having counsel any person who was in a position to Inform was abandoned. Mr. W. C. H. Haines of the the Commission on any matter relating to Mines Department was appointed Secretary its investigation, to communicate with tile to the Commission. Secretary of the Commission. The Royal Commission commenced the Mr. N. MacDougall of the Commonwealth public hearing of evidence on the 12th day Crown Solicitor's Office attended early sit­ of May, 1964, at Geraldton and subsequently tings holding a watching brief on behalf of held 35 separate sittings at the followlng all Commonwealth Government Departments places and dates as shown. Dongara, 19th and authorities associated with air-sea rescue and 20th May; Jurien Bay, 26th May; Cer­ work and radio telephony. He appeared vantes, 27th May; Lancelln, 2nd June; Man­ later as counsel representing the Depart­ durah, 9th June; Rockingham, 10th June; ments. Eighty-seven exhibits were tendered in which was of great value to myself and my evidence and 2,124 pages of transcript notes Advisers. I should also like to record my ap­ were taken during the proceedings. The list preciation of the coverage of the proceedings of exhibits is attached hereto as Appendix of the Commission by the newspapers and "B". especially to thank those members of the newspaper reporting staffs who accompanied All hearings were in public and ail exhi­ the Commission to the coastal anchorages, bits were available for inspection to the pub­ the Abrolhos and the North West ports. lic and Press. I am greatly indebted to my Advisers for In submitting this Report, I desire to ex­ their wlllingness to co-operate and to assist press my appreciation for the co-operation with technical and practical advice. Their received from persons connected with the courtesy was unfailing at all times. We all Commission during these proceedings. In owe a great deal to Mr. Haines, the Secretary, particular I desire to thank the Honourable for his capable organisation of the sittings of the Premier for making rooms available at the Commission, both in the city and at out­ Parliament House and also to thank the ports, and for his handling of the compli­ officers of Parliament House for their assist­ cated travelling arrangements. Without his ance during the proceedings. I wish to record firmness combined with patience in handling my appreciation to the Chief Hansard Re­ members of the Commission, reporters, porter and his Staff for the prompt and drivers and witnesses alike the Commission accurate reporting of the daily transcript could not have been so successfully concluded.

CHAPTER n.-INTRODUCTORY. GEOGRAPHICAL AND BIOLOGICAL. The same witness, a master mariner, stated Although the terms of reference which further- were to be the subject of enquiry and report .... there are many reef bound coasts in this Royal Commission embraced all in the world and quite a number of classes of ships to which the Western Aus- them do not share the same climate as tralian Marine Act, 1948-1962, applied, the we do. As far as a mariner is concerned evidence adduced at the public hearings was the greatest hazards he has to face in directed almost exclusively to fishing vessels taking a small craft along a coastline are and private pleasure boats. Brief references poor visiblllty, especially with a ship not were made to coast trade ships, harbour and equipped with radar, or prolonged gales river ships and to hire boats. The only re- which make position finding very diffi- ferences to pearling and whaling boats con- cult: and the fact that we have a very cerned marking for identification purposes, reef-strewn sort of coast is well com- in the case of pearling boats, and radio tele- pensated by the fact that we have a good phony in the case of whaling boats. Such weather coast and visibility is usually references were in favourable terms, made very good. (Trans. pp. 26-27.) only for purposes of comparison with the fishing industry. There was no request to Taken as a whole and in its less favourable the Commission to receive evidence concern­ aspects another master mariner described ing such vessels or to make inspections. The it in the following terms- port of Broome, which is the centre of the pearling industry, was not visited. A com­ .... the Western Australian coast is of parison was made by witnesses between the such a nature and compass and is sub­ qualifications of masters and coxswains of ject to such a variety of weather, tidal coast trade ships and harbour and river craft, and ocean current conditions that ail on one hand and fishing vessels on the other. vessels over 300 tons trading on this This comparison did not directly concern coast should be manned .... as foreign measures for improvement in the matter of going vessels. (Trans. p. 764.) safety. A number of witnesses dealt with the safety requirements concerning hire boats Yet another master mariner described the as compared with the very limited control coast in these terms- of private pleasure boats. One witness in particular devoted his evidence to safety The coastline of Western Australia precautions taken in the case of sea-going extends for nearly 4,000 miles and is very passenger ferries. A safety matter of vital poorly provided with navigational aids, importance concerning all vessels operating lights, radio beacons, etcetera. The outside harbour and river limits, to wit, the north and north-west coasts experience lighting of the Western Australian coast for giant tides, which sluice among a myriad navigation purposes, was raised by witnesses islands and reefs, with the added sea­ in all categories. sonal risk of destructive cyclones sweep­ ing down from the Aratura Sea. The coast of Western Australia North of Cape Naturaliste was described in its most The west coast is studded with off­ favourable aspect as- shore reefs and dangers Which, when a fair weather coast with practically combined with the unpredictable sets no fog, short-lived gales and mainly and strong on-shore winds, have been moderate weather. (Trans. p, 7.) the graveyard of many ships. 10

The south coast is rugged and in­ grounds of that area were from 30 to hospitable, battered by the huge swells 40 nautical mlles from the processing of the Southern Ocean which has the port of Geraldton. deserved reputation of being one of the 1948-1953: The industry during this world's stormiest. (Trans. p. 1857.) period shared in the advantages of post­ war reconstruction. Marine engines were Excluding the products of pearling and available and fishing boats were fltted whaling, the wholly or substantlally ex­ as motor craft, in some cases with an ploited fishing grounds in Western Australia auxiliary sail. Disc power-winches were are located on the western and southern installed to assist in pot hauling. This coasts and at Exmouth Gulf and yield the factor led to operations in deeper waters following principal varieties: crayfish, as well as to more intensive fishing of prawns, snapper, [ewnsh, salmon, herring the shallower grounds. Markets were and shark. On the northern coast a small established in tile United States of group of boats is based at Point Samson America for frozen crayfish tails and pro­ working on the spanish mackerel grounds. cessing and freezing plants were bullt at This fishery could well extend to the Nor­ Geraldton, Fremantle and Lancelin. thern Territory border in the course of time. Small ships of 50 to 70 feet in length, Of the greatest economic importance to Wes­ popularly known as "freezer-boats", tern Australia and to the Commonwealth is were fitted out as mobile, refrigerated, the crayfish industry, prawn fishing being as processing plants. yet only partially exploited. The vessels and Fishermen were organised on a con­ men engaged in the crayfisheries far out­ tract basis by the new processing com­ number all others combined. In his scientific panies, and towards the end of the period review "The Western Australian Crayftshery" the only threat to expansion appeared published in 1962, Dr. Keith Sheard, formerly to be the scarcity of bait for crayfish an officer of the Division of Fisheries and pots. Oceanography, C.S.I.R.O., describes the extent 1954-1961: More powerful engines were of the crayfish areas and the growth of the fitted to crayflshlng vessels and echo­ industry in the following terms: sounders were introduced to locate Crayfishing is carried out in coastal suitable fishing grounds. areas over a distance of about 600 statute * * * * miles between latitudes 25"S. and 33°S., During the period some crayfishermen to a depth of about 45 fathoms. Some formed co-operatives, one at Geraldton fishermen operate at greater depths. The and one at Fremantle. Supplles for the chief areas of commercial production lie latter were drawn from the relatively between latitudes 29"S. and 32"S. These distant Lancelin area, as well as from areas extend from Port Gregory, 40 grounds off Fremantle. The flshery ex­ nautical miles north of Geraldton, to tended northwards of the Murchison Rottnest and Garden Islands, off Fre­ River to the fringing reefs of Dirk mantle, and include coastal waters to Hartog Island, and in 1955, to deep­ depths of 40 to 50 fathoms (varying from water areas outside the Abrolhos system 15 to 20 nautical miles off-shore), to­ proper. By 1960 reef systems to the gether with the inner and outer reef sys­ north of North Island, Houtman tems of Houtman Abrolhos. This highly Abrolhos were worked; further expan­ productive region occupies some 300 sion in this area is to be expected. In statute miles of coastline and covers a Dongara, which has a fishable area of crayfish bearing area of approximately over 2,400 square miles, larger vessels 8,000 square miles within the 45-fathom worked some of the reef areas of Clio line. The most prolific situations are Reef, Turtle Dove Shoals,Pelsart Bank reef-ledge and reef-fiat systems, and not and Beagle Island. The search for more the sand, mud and fine shell grounds distant fishable areas is continuing, e.g' J which make up at least half the surveyed the extension of the fishery northwards sea floor within that area. (at p, 9). of Houtman Abrolhos, whilst regions of which major reef systems are known and He proceeds to describe the development fished are being explored in greater de­ of the industry between 1944 and 1961: tail with echo-sounders. * * * * 1944-1947: The chief outlet for com­ The fishing fleet now includes a con­ mercial crayfish in this period was at siderable proportion of large, seaworthy Geraldton, where the tails were canned vessels with crews experienced in oper­ for use by the armed forces. Houtman ating under the difficult conditions pre­ Abrolhos was the principal source of vailing over the Western Australian supply. The majority of the vessels were coastal shelf. (At pp, 9-10.) sailing craft fitted in some cases with In describing marine crayfish behaviour auxiliary engines, all pots being pulled and fishing practice, Dr. Sheard writes:- up by hand. The fishery was restricted The marine crayfish is an omnivorous, to reef areas at a depth where the pots nocturnal feeder, sheltering during day­ could be worked in this manner, con­ light and, reputedly, during periods of sequently the shallow-water areas within strong moonlight, among the crevices the Abrolhos were favoured by the fisher­ and caves of reefs and ledges, and men even though the vartous fishing among coral growths where these exist, 11 e.g., Houtman Abrolhos. Normally they on one day, the other on the next; be­ move about during hours of darkness, cause of Interruptions due to bad feeding in close proximity to shelter, the weather some pots are hauled at longer directions and extent of their wander­ intervals. Catches so obtained are satis­ ings con trolled by characteristics of the factory to fishermen but the risk of ioss reef topography and incidence of food­ of pots through chafing of buoy ropes is providing organisms. considerable, as is that of loss of cray­ .;+ fish from damaged pots, and from undis­ * * Because of the relatively sedentary turbed invasions of predators, parti­ nature of the juvenlle and adult cray­ CUlarly the octopus. Hence fishermen fish the population is divided into stocks, endeavour to keep intervals between more or less independent during that hauls as short as possible. phase, and of unequal size. These in­ Because the process of lifting, empty­ habit reef systems of varying degrees of ing and sorting of crayfish, pot mending complexity and of exposure to heavy and re-baiting are time consuming and seas. because the period of time during which these processes can be carried out * * * * Is limited by weather and sea conditions, Generai fishing practice is either to and by the time occupied In travelling set the baited pots In Clusters, usually from anchorages to the fishing grounds in groups of five but individually buoyed, It follows that in a given area a fisher" around and amongst reef outcrops, coral man can manage efficiently only a cer­ lumps, and areas of heavy marine tain number of pots, that number vary­ growth, or, when a rock ledge has been ing from one ground to another, and located, along this, at the foot or on top, from time to time, as weather and sea as experience dictates. conditions vary. Fishermen are aware * * * of this but tend to operate pots In excess Large numbers of immature crayfish of the efficient number, partly, as de­ on coastal reef systems moult in Nov­ tailed above to ensure that some of a ember of each year. The exo-skeleton of set will be In a position to catch well, these is parchment yellow to light pink partly to detect local crayfish migra­ in colour due to a reduction in the nor­ tions, partly to pre-empt areas within mal colouring pigments, principally which to set the main runs of pots, and carotenes, whence they are termed partly for reasons of prestige. Generally, colloquially "White Crayfish" (Sheard a lower number of pots, hauled at dally 1949; George 1958). After moulting, and intervals, is used on high-yielding when the new exo-skeleton Is hardened grounds, a higher number, hauled less sufficiently, they leave the shallower on­ frequently on Icw-yielding areas. shore reef areas and move seaward to * * * * deeper reefs during the latter part of Fishing boats are used as transports November, and in December, slowly and as working platforms on which to deepening in colour. To take advantage carry out pot maintenance, hauling and of this limited migration, fishermen set laying and crayfish sorting and storage. their pots seaward of the reef systems, They include several classes, the six­ generally on margins of the consolidated teen-foot and upward "scooter boats," sands over which the crayfish pass. At adapted to work in the shallow, pro­ present this phase of the fishery yields tected Abrolhos inner waters; the about 40 per cent. of the yearly total twenty to forty-foot fishing boats de­ weight. (At p. 14.) signed to work among the inner and In use, pots are hauled singly, outer coastal reef systems: and freezer­ generally In the morning when the land boats of up to eighty feet in length, breeze Is blowing and before the sea operating in open sea, deeper waters, at breeze has gained full strength. When considerable distances from anchorages. hauled they are emptied of crayfish, Each of the various classes is efficient minor repairs are madeto hauling ropes when working within the conditions for and buoy ropes and to the pots. These which it was desig-ned but not so in other are re-baited and re-set, pots not catch­ circumstances. Ing well being moved to likelier sites. Improvements In vessel design and in­ Because these operations are carried out crease in horsepower have continued during daylight hours, when crayfish are during the life of the fishery. This has not actively feeding, the period of ab­ resulted both In an expansion of the area sence of the pot from the sea-bottom available to the fishery, a process which does not represent an interruption to is continuing, and in extensions of the the trapping process. time Which can be spent hauling and In areas close to anchorages and in maintaining pots under conditions of the sheltered, shallow waters of Hout­ freshening wind and rising sea; and, man Abrolhos fishermen aim at lifting thus, in a progressive increase in the their pots daily. On the deep-sea fish­ number of pots which can be worked ing grounds longer intervais are the efficiently, although at an Increased rule. In both types of areas the prac­ cost. (At pp. 19-20.) tice is growing of setting in the begin­ The total catch in each year Is thus ning, more pots than can be handled the sum of catches from fishing grounds efficiently in one hauling' period. In which are at different levels of exploita­ these cases one half of the set Is pulled tion. That catch is contributed to by 12

fishing boats which are of a number of September.-Coastal areas north of different types and sizes, each type 30 deg. S. were open until 1960; closed suitable for work in specific areas. The in 1961 and thereafter. Abrolhos closed. types may be grouped as follows: Small, Winds variable, onshore-offshore but shallow draft, craft suitable for work­ with moderate southerlies north of ing at low cost on the onshore reefs, and Jurien Bay. at the inner reef areas of the Abrolhos; medium sized craft, limited by weather October.-Coastal areas north of 30 conditions but capabie of working well deg, S. open until 1960, closed in 1961 off-shore within reasonable distances of and thereafter. Abrolhos and coastal local anchorages; and large well equip­ areas south of lat. 30 deg. S. closed. ped craft, often fitted as freezer boats. Fishermen generally preparing for new They work in areas distant from anchor­ fishing season in all areas. Winds ages and carry a disproportionately large variable but with moderate southerlies number of crayfish pots. (At p. 37.) and westerlies. (At pp. 10-11.) Dr. Sheard made the following further Dr. Sheard has divided the year into a comments as part of his submission in writ­ monthly calendar of the crayfishery, as fol­ ing to the Commission: lows:- The fishery has attained its present November.-Coastal areas north of magnitude from small beginnings in latitude 30 deg. S. opening on November about 16 years. The normal course of 15. Abrolhos areas are closed. Coastal the evolution of a fishery is much slower. areas south of 30 deg, S. are open from During that period boat design is im­ November 15. In both cases fishermen proved and adapted to meet the require­ are preparing for the new season's ments both of fishing, and weather and fishery on the run of recently moulted, sea, conditions in particular areas and pale coloured, immature crayfish circumstances. Even the best of hull ("White" crayfish) which usually com­ designs must be tested by experience. mences in the last few days of the month. There has not been sufficient time for Winds are variable, onshore-offshore, thoroughly satisfactory designs to have tending to strong southerlies north of evolved here, although some of the larger Jurien Bay but with calm periods in all vessels are of good standard. areas. To some extent, and particularly in December.-Both coastal areas open the smaller vessels (under 40 ft.) the for fishing, Abrolhos closed. Winds are position has worsened in that hulls variable, onshore-offshore, south of 30 designed for sail power, which gives deg. S. strong southerlies north of 30 some stern lift, have been fitted with deg. S. powerful engines which give stern drag and dip, thereby increasing the risks. January.-Both coastal areas open, Abrolhos closed. Winds as for Decem- Such a combination is particularly bel'. hazardous in the case of a vessel, loaded by the stern, transporting pots, with a February.-As for January. Winds as heavy following sea. for December. During the sixteen years the demand M arch.-Both coastal areas open, for fishing vessels increased at such a Abrolhos open March 15. Winds as for rate that small boats designed for December but periods of calm in all sheltered waters, and designed more to areas. catch the eye of an amateur than to give service under working conditions, April.-All areas open. Winds variabie, were brought into the fishery. In many generally light. cases these have not sufficient beam May.-All areas open. Winds variable, either for safety or for adequate work­ onshore and offshore, but with occa­ ing and stowage room. sional strong westerlies to southerlies. These references have been quoted in June.-All areas open. Winds variable, order to convey some idea of the difficulties westerly gales and storms particularly in confronting the cray fishermen in earning southern areas. a living and maintaining an industry of great economic importance to this country. July.-All areas open but little fish­ Similar difficulties are experienced in catch­ ing south of latitude 30 deg. S. owing to ing snapper, jewfish, salmon and shark. The weather conditions. Winds strong with prawn fishermen are more fortunate in that series of westerly storms and gales in all they operate in the normally calm waters areas. of Shari, Bay and Exmouth Gulf, although August.-Coastal areas south of lati­ these areas are subject to sudden and violent tude 30 deg. S. open but weather condi­ storms as well as the hazards of shoal waters tions limit fishing. Coastal areas north and other local obstructions. The dangers of latitude 30 deg. S. open. Abrolhos of fishing operations accompany fishermen areas close on August 14. Winds variable in their movements coastwise, to and from with moderate southerlies north of anchorages, and do not cease even at moor­ Jurien Bay and with westerly storms ings which are frequently located at un­ southwards. protected anchorages. 13

CHAPTER III.-CAUSES OF CASUALTIES TO VESSELS.

In dealing with the causes of casualties Item 6-Fire or Explosion-5 Per Cent.: to vessels in the fishing industry, numbering By far the majority of cases have oc­ 122, for the period 1st June, 1957, to 30th curred on craft driven by petrol engines, June, 1964, a witness, A. F. McKimmie, caused mainly by lack of care when fuel­ Engineer and Ships' Surveyor of the Harbour ling, that is spilling fuel into bilges and and Light Department supplied, the following the carriage of reserve petrol In tins and information:- drums which eventually rust out and The reasons for these casualties can leak into bilges. Poor ventilation ac­ be attributed to- counts for a small proportion. Item 7-Engine Failure and Stalling­ Item l-Dragged or Broke Moorings­ 4 Per Cent.: 27 Per Cent.: Whilst above is the main reason for Vessels are operating out of anchor­ these vessels being lost, in most cases ages which are not safe anchorages in it would have been avoided if the vessels any weather and others which are ex­ had more sea room at the time of posed to N.W. gales which frequently failures. No allowance is made for traverse the coastline. The majority of failures such as this; that is, the vessels these losses are sustained by small craft are in dangerous water before faults can which are not capable of riding out be rectified. heavy weather and are usually operated by fishermen who are not aware of the Item 8-Engine Failure and Mechanical risks taken in using an unsafe anchor­ Failu1'e-3.3 Per Cent.: age or are prepared to take a risk with Engine failures in this item are major their craft without making adequate engine breakdowns, electrical faults provision for suitable moorings. such as flat batteries, faulty starter Quite a number of strandings can be motors, and also steering gear damage attributed to moorings not being exam­ or failure. ined frequently enough. Item 9-0verloaded-l.6 Per cent.: Item 2-Dumped in Breakers near Reefs This figure represents the known cases -24.5 Per Cent.: of overloading, included in the 13 per This percentage has increased greatly cent. "unknown causes" would be a in recent years due to the greater num­ number of cases of overloading but ber of fishing boats operating and fish definite evidence that this is the cause being harder to get, also the financial has not been obtained. (Trans. pp, 705­ liabilities some fishermen have, forced 708.) them to attempt to obtain fish irrespec­ The causes of the casualties to vessels, in tive of the risks involved. Inexperienced many cases accompanied by the loss of and careless fishermen now take their valuable lives, point a clear Indicator to the craft Into dangerous waters to find fish risks which constantly attend operations in and through passages full of hazards the fishing industry in Western Australian which a few years ago the more experi­ coastal waters. It is not the intention of the enced men would not consider using. Commission to make findings in specific Smaller type craft are the worst cases because there is no such requirement offenders In this respect. in the terms of reference. In some instances, insurance claims are under consideration. Item 3-Struck Reefs-15 Per Cent.: The liability of the insurers in each case, if Causes of these losses are similar to disputed, may be determined only by a pro­ previous item, that is, taking craft into perly constituted Civil Court and not by waters where a good seaman would hesi­ Royal Commission. This Commission has tate to go. Also included are vessels no desire to embarrass either the claimant which have struck reefs due to faulty or the insurers. navigation or lack of local knowledge. It is clear, from the scientific information given by Dr. Sheard and already quoted, that Item 4-Unknown-13 Per Cent.: the hazards of reef fishing and the crayfish­ This item comprises vessels reported lost ing industry are inseparable, that is, if it is but not clearly stating the reasons, also considered to be in the interests of the vessels the reason for their loss being national economy to maintain the industry not known. In all cases it can fairly be on its present sound footing. said they were due to the previous three causes and in addition overloading. Dr. Sheard made the following further commentsr-i- Item 5-Sprung Leak-6.5 Per Cent.: It is generally agreed that the fishery Leakage has been caused by a number is now a very intensive, highly competi­ of reasons; i.e., striking floating objects, tive one, and that easily fished accumu­ damage by craypot floats and sprung lated stocks are considerably diminished. seams In heavy seas mainly to fast ply­ Also, although the present catch is much wood craft which are driven into big seas the same as in recent years, that the at a greater speed than they should be. cost of getting that has increased. 14

The effect of this, from the point of. You rescued them?-Yes. view of the Commission, Is that the fish­ Was this breaker an unusual one or ermen must take more risks to secure were they coming in every now and their livelihood. One consequence of this again?-It was unusually big. It was Is that reef systems, hitherto regarded one of those really big ones right In the as hazardous and avoided accordingly, place where we usually go out. are fished, not only on their margins but In their broken water, using vessels Whereabouts did this happen?-About which were not designed for that pur­ four miles west of Rat Island. pose. In shallow water?-It was five or six Although the Fisheries Department fathoms. acted severai years ago to set a ceiling Mr. Travla: There Is a gap In the reefs limit on the number of boat licenses and the boats take a short cut. In fine Issued, this was set at a number at the weather It is quite safe, but overnight height of the fishery. To put the mat­ a big ocean swell comes In and there Is ter bluntly, we are now in a position no passage there at all, It Is just a con­ where too many men are chasing too tinuation of the breakers. As I see It, few crayfish, spread too thinly. In these they were taking a short cut with their circumstances, and despite any regula­ pots and he was unlucky. He copped tions, the risks will continue to be taken. one and over went his boat. A bit fur­ It Is the opinion of this Commission that, ther I overheard the other man saying, while It would be Impossible to eliminate all "The boat is sunk now alongside the of the risks associated with fishing, both pro­ pots." Where it Is sunk there are pots fessional and amateur, much could be done by the thousands. to lessen their effects by more rigid adher­ By the Commissioner: Was the boat ence to established safety precautions and a complete loss?-Yes. It overturned the addition of merely a few extra safe­ when it copped a wave at the stern. guards Indicated by casualties already ex­ Would you ever be able to stop men perienced. from fishing in waters like those?-No, At this point, It would be advantageous to because that ground is quite safe gener­ recount S0111e of the experiences of fishermen ally. It is only dangerous In a big swell, as narrated in evidence as well as some of and we never go there in a big swell. It their comments to demonstrate the hazards is a short cut to the continental shelf. encountered, the risks taken as a matter of That route saved me between 45 and 60 course and the outcome. Firstly, the evi­ minutes. dence of skipper, grade 2, R. J. Kannlkoskl, By Mr. Forsyth: You took a rlsk?-It of Geraldton; continuing the narrative con­ was not a risk. cerning an Incident Introduced by Mr. The boat which went through took a Travla: risk?-Yes. By Mr. Travla: About three weeks ago I was loading up alongside the Geraid­ By Mr. Travla: Did he have a wireless ton wharf and we had our wireless on on board?-Yes, we were talking only to four megacycles and I overheard a five minutes before that happened. We It conversation. I recognised Mr. Kanni­ said was a bit ticklish that morning, koski's voice. He was talking to another but if we turned back It would be more boat saying, "I cannot see the men." dangerous because of the hundreds of lumps. We had to stay there until the That Is the first I heard. He said, "Yes, sun was further north, or to go through. I can, they are on top of the boat." He said, "There is another big wave coming, By Mr. Forsyth: You say that In the we will walt and then come In and pick circumstances of your calling you take them up." There was a pause for about these risks, knowing full well that you 10 minutes. I suppose there were about will be caught ultimately?-I did not. 25 people crowding around our wireless The average fisherman does?-I do not set and I thought that he had gone too, think so. Most of us will not go If we but later on he was back on the all' and think the swell will break. When the said he had the two men on board. Will swell breaks In water of five or six you tell us how It happened and where?­ fathoms, there are hundreds of tons of It was one of those things. We were in water COIning down. a place where we should not have been that morning. There was a big swell How do you account for the fact that running but sometimes we take chances. out of 120 boats lost in the last nine Any boat wouid have gone down In that years, 48 of them were lost through being breaker. It was about 30 ft. high. That caught with dump breakers on reefs?­ Is one of those occupational hazards. I have been working at the breakers, and I did that for about eight or nine years, By the Commissioner: Was the other but I have not lost a boat. I suppose I boat pulling pots?-No, It was on our was lucky. If you are working in these way through the passage between the waters, and a breaker comes from out­ breakers. side and the wind is blowing towards Was the boat that went down your the breakers, If your engine was stopped, own?-It was not my own. you would have a chance of losing the 15

boat; otherwise you do not go to the 01' adjacent to them. This will be one breakers. The person who goes to the of the serious questions. I think it is breakers is looking for trouble. mainly up to the seamanship of the man himself who 11lUSt, at all times, never All the equipment in the world will turn his back on the water as they can not save you if you are caught in one creep up innocently. You must have of these?-None, because there is no time plenty of knowledge and know that the to use your wireless. In the case I re­ waves build up a quarter of a mile away. ferred to he went over about 50 yards After years of experience you can glance from where I was. at the water and pick the big waves when By Mr. Napier: Is there anything on they build up over a quarter of a mile this boat in the way of floating material away and this gives you a chance to get which would have assisted the men?­ out of the area. (Trans. p. 1122.) There was a big engine cover and that came loose. Somebody found part of the The same witness narrated one of his ex­ wheelhouse in the Southern Group, and periences at rescue work when he was the life jackets were picked up by an­ directed to Wreck Point, 10 miles south of other person. The boat went over so Moore River, while the vessel concerned was quickly that they could not make use stranded on a reef neal' Wreck Point at the of the equipment. They were on the southern tip of the Abrolhos: overturned boat. I put on my life jacket Recently when the "Atlantic Ocean" and dived in to get them. (Trans. pp. went aground at the Abrolhos Island I 49-52.) was at Yanchep hotel in the evening when a message came through from Next, I quote the comments of coxswain Captain Head at Fremantle to say a C. B. Bateman of Lancelln: boat had struck a reef and was sinking The point is that you cannot form a rapidly, and asked for help. Constable standard for the sea. If you have not Martin approached me and asked how had experience you cannot say how dan­ soon I would be ready to start a search for the boat. I said I would be ready gerous the sea is 01' where It is likely to break. You can come In and watch in 20 minutes. We returned to camp and the sea breaking and then wait for the got a thermos of coffee, together with right time, or what you think is the right dry clothes for any survivors coming out time and It will still break. Only experi­ of the water. We then made a search ence will show you the danger of the for the boat. We travelled 40 miles over sea. If you know that it Is likely to make the reef in a howling south-wester, and you keep away. I have lost good gear our windscreen was smashed by big because I would not pick it up. I have waves, because we had to go on top of had to leave it there because I felt it the reef to look for the boat. We reach­ would be dangerous to try to pick It up; ed Moore River in the daylight when a whereas others in trying to pick up their message was sent to a fisherman to gear cop the lot. (Trans. p. 282.) notify the police that we had searched the area from Yanchep to approximately Shark fisherman, L. E. Renfrey of Man­ three miles north of Moore River, and durah made the following comments: that we were returning to base. We had not seen any wreckage. (Trans. p. 1120.) We just don't go out at any time. If it was blowing a gale we wouldn't pick Next, the comment of coxswain S. T. Liddon up our shark lines because, after all, we of the Abrolhos who works a "scooter" boat: want to get back again; but In the cray­ fishing game they have to get there and We will take risks. You have to these they don't worry about the barometer days to catch crayfish. But it has to be a dropping or about rough seas. They take calculated risk. You will get a propor­ £20,000 boats up to 6 ft. 01' 7 ft. off the tion of small boats lost-perhaps a large rocks where they shouldn't be, just to proportion; but I don't think you will get get a dollar. We only go out if we think a large proportion of men drowned, be­ we can get home again. We watch the cause in nearly every case where a small barometer, but in the crayflshtng indus­ boat has gone down the man has been try it's a different thing. They have to rescued. He can either swim ashore or pull their pots. In the bad weather and someone picks him up. The small boats if it Is too rough to fish, we don't go. keep an eye on each other. I work on That's the difference between the two the main reef. I might decide to so out industries. (Trans. p. 392.) and get a couple of pots that are unsafe. I will look around and see if anyone is Next, the comment of skipper, grade 2, R. around in case I go. To catch crayfish E. Hugill of Scarborough: you have to take calculated risks. (Trans. It is the hazard of the game. For a p. 1350.) time crayfish have been In the surround­ ing areas outside the reefs in the safer M. H. Glazier, who also works a "scooter grounds, but now generally the only boat" at the Abrolhos:- crayfish to be obtained are getting back Look at it this way: There are quite on to the reefs. To earn a living you a number of chaps using small boats, must now fish nearly on top of the reefs like myself. I use a 14-ft. aluminium hull 16

which has buoyancy in it. In the first advantages, and most of the time that year I operated it behind the reef over is the only advantage you have, and there, which is fairly rough at times every man who has access to that ad­ and it is a little bit precarious where vantage will share in the pounds in the you go. I have been rolled over. In water. (Trans. PP. 1477-78.) the first year I lost count of the number of times, but I never lost the boat. I Next, the comments of coxswain A. L. lost a little bit of my gear out of it. Grigg of Walpole, fisherman:- I had a little bit of a swim, too. There Along' the south coast I do not operate was no actual danger provided you could in water under seven fathoms in the swim reasonably well. open sea. By the Commissioner: What distance You confine yourself to the waters would you have to swim? that do not break?- It is too rough to operate there. To Well, I have evolved a method if I get all intent and purposes the water could rolled in a breaker when the motor has break. There is one place west of an stopped. All these are occupational island where the water is concentrated hazards which seem to be associated with in a corner and has to run back. Even this game. They happen occasionally. though there are nine fathoms, the I would say that what I usually do is water breaks when the swell is running. that I drop over the stern and wait for As a fisherman you cannot be told about the breaker to hit me; that's if the motor these things; you must learn them for is not going. If the motor is going, it yourself. Good seamanship is acquired doesn't worry me. I run away from the through experience. I do not think it breakers. It is a fast boat and can keep can be taught by any other means. Navi­ in front of them and they don't worry gation is of no use to a person who does me at all. If the motor stopped for not know the sea and how it behaves, some unknown reason I get a rope particularly the amount of drift from around my screw and jump overboard different forces of wind, and how to and hang on to the rope so that it make allowances on a long journey for doesn't turn this way (indicating) too the amount of drift. (Trans. p. 1749.) much. The boat fills with water, but the force of the breakers would take me into Next, the comments of Geoffrey Bourne, shore. I bale the water out of the boat Lieut.-Commander, R.N., retired: and dry out the top of the motor and Inevitably in this type of work men start it up again. (Trans. p. 1379.) will be spurred on by greed, capital A few years ago I had an experience debts, competition, overcrowding, to when I was working on a boat called the contradict their better Judgment 01' at "Valkyrie". We were coming from Shark any rate press their luck. They have Bay and we had bags of floats on board. gone to sea with poor equipment, car­ We 'Struck a blow coming down the ried too many pots, have been forced to coast which was fierce. It was a 20-ft. work in adverse weather conditions all boat and it completely turned turtle. with very reasonable excuses looked at We threw everything heavy overboard from the business point of view, but one and I thought these floats would has to be a very good seaman and to be be handy If we went into the strong willed to know Just how far one drink. It was a big wave that hit us can go and to stop at that point. and I saw it looming up and I threw the It is very easy In an examination to chap who was with me a bag of floats say what one would 01' would not do in and he was able to hold on. However, a hypothetical emergency or what after I went overboard when I came up action one would take under certain cir­ I saw a bag of fioats and tried to grab cumstances, but when the Individual is them but I was not In the race to catch under pressure from external forces, them. Johnny Welsmuller would not particularly financial ones, it is also have caught them, they were travelling very easy to say-"she'll be right". We that fast. I thought it was a good tllus­ read in the newspapers the sad story of tration that if you had a raft on board those who have found that it is not you would not catch it in a sea like that necessarily Hall right", but we never heal' 01' with breakers with a fail' amount of of those, who can quite justifiably say turbulence and the sea moving fast. to themselves-"There, but for the Grace (Trans. pp. 1377-78.) of God, go 1." The sea does not take note of hard luck stories. (Trans. pp, Next the comments of skipper, grade 2, W. 815-816.) T. Newbold, of Geraldton:- You cannot eliminate all the risk from And, finally, the summary of skipper, fishing. From time immemorial we have grade 1, G. J. Anneal', who represented the had the risk of men going down to the Rock Lobster/Crayfish Industry Develop­ sea in small ships. Many words have ment Association of Australia (Inc.):- been written about this and you cannot It does not matter how knowledgeable eliminate all risk. Many pounds, shil­ 01' practical a man may be at sea, there lings and pence of your income depend will always be the circumstances that on how accurately you anticipate the could beat him. It does not matter how 17

good a boat may be at sea, there will be anical failure and, despite all precau­ the time when it could get into trouble. tions the operator may take, there will It does not matter what equipment is always be the time when precautions fitted it will always be subject to mech- will fall.

CHAPTER IV.-CAUSES OF CASUALTIES AND POSSIBLE REMEDIES. Now to deal separately with the specific The charge cannot be laid against the fish­ causes of casualties to vessels:- ing industry that it has not moved to help itself. It will be shown later that the fisher­ Item 1. The Dragging or Breaking of men and their co-operatives, as well as pri­ Moorings. vate enterprise associated with the industry, Obviously these mishaps, which comprise have made very substantial contributions to the highest percentage of casualties, to wit, the well-being of the industry and the cost 27 per cent., are due, as stated by the witness of its upkeep. McKimmie, to unsafe anchorages and inade­ quate provision for suitable moorings. The statement shown below indicates the contribution made by Western Australia to On the western coast, south of Shark Bay, the economy of the Commonwealth in the the only man-made safe anchorages are at matter of exports of marine products for the Geraldton Harbour, Fremantle boat harbour years ending 30th June, 1963, and 30th June, and Bunbury harbour. 1964, respectively. The robust figure of Natural safe anchorages exist in the rivers £5,872,000 or 69.9% of the total for the finan­ and estuaries and in the Abrolhos and Fre­ cial year just ended is a major effort. mantle-Safety Bay island groups. There are partly safe natural anchorages Exports of Marine Products-State of at various places along the coast such as Port Shipment. Gregory, Cervantes, Jurien Bay and Lance­ lin Island, but the safety of these anchorages State of Shipment 1902-63 1963-64 (a) is dependent upon weather conditions. ~'£'ooo £'000 % % On the southern coast safe anchorages New South Wales 302 4·0 412 4·9 Victoria 436 5·8 552 6·5 exist at Albany and Esperance as well as in Queensland 719 9·7 621 7·4 the rivers and estuaries. South Australia. 407 5·,t 636 7·5 We-stern Australia 5,348 72·1 5,872 69·9 With the exception of Fremantle all of the Tasmania 175 2·3 193 2·3 rivers and estuaries present the hazard of Northern Territory 23 0·7 100 1·5 a treacherous bar crossing such as those at Murchison River, Mandurah, Augusta, Norna­ Total 7,410 100·0 8,391 100·0 IUp and Wilson Inlet. (a) Subject to revision. Carnarvon and Shark Bay provide reason­ Source: Commonwealth Statistician. ably safe natural anchorages as does the northern coast, but all open water anchor­ Inspections revealed that the best de­ ages are exposed to the violent cyclonic dis­ veloped boat harbour on the western coast turbances peculiar to those areas. is at Geraldton, followed by Fremantle, Bun­ There are many important anchorages be­ bury and Rottnest in that order. Geraldton tween Murchison River and Augusta which possesses a completely safe anchorage of must be labelled as fair weather only. Hor­ ample space and depth with good holding rock's Beach, Port Denison (Dongara), Cliff ground, mooring pens, loading wharf, en­ Head, Beagle Island, Green Head, Ledge trance lights and slipways. Fremantle is Point, Yanchep, Hall's Head (Mandurah), similar but it lacks the mooring pens and is Rockingham, Dunsborough and Flinders Bay subject to surge through the exposed en­ are some examples of such anchorages. trance in rough weather. Bunbury lacks mooring pens and slipways. Rottnest lacks All of the anchorages mentioned give slipways and mooring pens, for which, per­ whatever shelter they provide to all classes haps, there is no need. of small vessels, including some 900 fishing vessels and a large proportion of the 8,000 On the southern coast Albany, with its odd registered private motor boats, plus natural resources, has sufficient accommoda­ yachts, rowing boats, dredges, barges, tion for its needs. Esperance, with its new etcetera. harbour in the making, will naturally follow Your Royal Commissioner and my advisers the development of Albany. are unanimously of the opinion that far too Carnarvon and Shark Bay (Including Den­ little has been done at Government level for ham and Monkey Mia) have the natural the protection of ocean-going fishing and anchorages, which are in need of further de­ private vessels by way of the provision of velopment by way of adequately lit channels shore facilities, which play such a vital part and the provision of adequate shore facilities. in the welfare of vessels while at sea and "As with many of the undeveloped or under­ travelling to and from the sea. Such faci­ developed anchorages, immediate surveys are lities include light-houses, leading lights, required to determine the best positions for day markers, deep channels, safe anchor­ locating anchorages and channels, as well as ages, slipways and mooring pens. day and night beacons. (2)-97630 18

The northern coast relies almost entirely Safe Anchorages-i-Immediate Needs. on its natural resources by way of protected bays, river I110Uths and tidal creeks. Shore The port of Denison stands out as having facilities are almost non-existent. a major and immediate claim on available public financial resources for the establish­ An ever-increasing body of tourists and ment of a completely equipped boat har­ amateur flshermen with trailer-borne vessels bour, primartly for the use of fishing vessels is streaming into the 1110re remote outports, and for the use of private vessels as an im­ where the beautiful seascapes and swimming portant but secondary consideration. SOlne beaches, with bountiful fishing grounds, pro­ natural protection is afforded the anchorage vide an all-year-round attraction. At hoiiday by a reef at the southern corner, but the time the stream becomes a flood and the whole anchorage is completely exposed to holiday makers are finding their way into north-west to westerly gales. A loading jetty every anchorage between Cossack and Es­ has been provided, but this also is as much perance and even north and east of those exposed as any vessel lying in the anchorage. points. The great number of motor boats Inspection revealed that it is dangerous for already registered bears witness to the driv­ fish 01' other cargo handling on account of ing force behind this continuous migration. the bad surge when a big ocean swell is running. The Houtman Abrolhos fishery is of a com­ pleteiy separate character. Even the exist­ The importance of Dongara, that is, the ence of the islands and rocks as coral forma­ Denison anchorage, as a fishing centre can tions so far south is unique. They are a be gauged from the figures for the calendar source of great marine wealth, but the fish­ year 1963 stated hereunder. It should be ery has asked little from public funds in re­ noted that, for Fisheries Department statis­ turn, Dr. Sheard says of them- tical purposes, the ocean is divided into 11Ul11­ bered squares of one degree latitude and Houtman Abrolhos itself consists of longitude along the coast (see Appendix "C", groups of islands and shallow water reefs, Fig. 1.), and further, that boats move freely each group delineated by fringing reefs between adjacent blocks and that the num­ and islands. The inner waters of each bers given do not represent the number of are shallow and are worked by small boats permanently using the anchorages. For craft unsuited for working the adjacent exampla, it is possible that not more than deep and exposed open waters. Thus the 100 boats would use the Dongara anchorage Abrolhos fishery has developed with one at one time. The balance of the totai given set of men, with suitable craft and fish­ for the block would be spread out over the ing gear, working the inner shallow and adjacent smaller anchorages and Geraldton. protected areas; and another set, often The same thing applies in relation to all of using the San18 anchorage, but with the major centres, subject to certain geo­ larger craft and wIth gear similar to that graphlcal limitation of operations gazetted of the coastal fishery, working the outer from time to time. grounds. Appropriate sorting of the re­ turns provides the two sets of data. The Fish and Crayfish Production at Main Island Groups themselves (Pelsart, Anchorages. Easter and Wallabi) are separated by Calendar Year 1963. deep-water channels and are sufficientiy isolated for distinct fisheries to have de­ Ko.of Value vaiue Block Boats Crav- Other of of veloped. (The Western Australian crau­ No. Locnllty (Peale fish Ffsh Crayfish other Fish fishery, Veri- pp. 16-17.) ods) The fishery is dependent mainly upon G8r­ lb. 11). £ £ aldton as a mainland port marketing base 29 xrandurau 1 Rockingham >- 4(j 614,104 451,361 11;3,718 32,047 and orr-season anchorage. Its immedtate Fremanlle J 36 Frcmantlc- ina 4,772,l--!2 303,780 8:35,533 21,560 needs would be confined to lights and per­ Lnncelln haps a few day marks, 3S}LaUCl'lin. .... os 1,033,771 37,567 180,660 2,667 3n Jurten Day ~10 3,018,D87 3J,J81 2,--148 H Dcngnrn 2-10 5,718,301 59,872 1,g6gg~ 4,251 The adequate provision of suitable 111001'­ 45 Geraldton ... 1-17 2,261,952 26,555 395.843 1,885 ings is obviously a matter for the fisherman .te Abrolhos 219 3,447,671 57,476 603,342 4,081 01' boat owner himself. To 111001' a vessel (For further Ilgures sec Appendix "C" ftgurcs 2 aml 3). correctly with sufficientiy strong gear is a matter of education and C0l1U110n sense. The The figures reveal that as a fishing safety of his vessel depends on his moorings' centre Dongara, and its port, Denison, are weakest point. The toll of broken and no less important than Fremantle or Gerald­ draWs'8d moorings must also have a direct ton and that the number of boats using the ~nchorage bearing on insurance premiums. If an of­ at peak periods is no iess great. flcial booklet of instructions and advice is -' It follows that Dongara is entitled to an all issued to licensed or registered boat o-wners weather boat harbour with facilities equal as the result of tIle report of this Conunis­ to Geraldton boat harbour. The need is sion a chapter should be devoted to correct urgent and embraces all facilities such as mooring and malntenance of moortngs, It breakwater, lighted entrance, mooring pens, is difficult to see how much more the de­ sllpways and loading wharf. partment could do to assist, apart from. al­ Jurien Bay and Lancelin follow closely location of areas and inspection of gear behind Denison in order of importance. Here periodically in protected anchorages. the financial outlay required should not be 19 so great because of the degree of natural They had moored the boat in the cove protection afforded by the off-shore islands. because it was impossible to get through Mooring pens and loading wharves would not the bar. Their boat broke Its anchor appear to be a necessity. Jetties have been rope. provided by private enterprise. It is under­ stood that steps have been taken to light In SUbmitting' this exhibit, Mr. H. J. Sutton, the channel into the Lancelin anchorage. spokesman for the Shire Council said, The lighting of the main channel into Jurien The boats were anchored outside be­ Bay is also an urgent necessity. Both an­ cause they could not get through the bar. chorages require some groyne protection and Normally when the fishermen cannot get deepening. through the bar they anchor their boats in the bay and then if a storm comes A strong case has been made out at Man­ up they go out and take their boats up durah and at Rockingham for the construc­ to Safety Bay. On this occasion the tion at each place of a boat harbour to serve storm came up quickly and the three the tourist industry together with the fishing boats were lost. Much damage was done and yachting fraternities. Whilst the fishing to them and one or two were complete statistics quoted for these two centres do not wrtte-orts, I think. (Trans. p. 373.) alone justify the heavy expenditure required for the construction of boat harbours there The hazards of the Mandurah Bar are too is still room for the expansion of professional well lmown to need detailed description. The fishing activity. Exhibit 2, submitted in same witness, Sutton, made the following evidence at Mandurah, shows the hazards of general comments, the Hall's Head anchorage even in summer­ time. (Appendix "C," figure 4.) I am the spokesman for the Shire Council of Mandurah. They delegated The letterpress reads: me the authority to speak on their be­ Mandurah: At least three boats, valued half. We feel there is room in Mandurah at about £8,000 were swept ashore at for improvement as far as boat safety Hall's Head In a sudden north-westerly goes. Our main concern, or our biggest blow on Monday morning. Two other hazard in Mandurah we consider is the craft narrowly escaped a similar fate. ocean bar. Of course, we have the prob­ A jeep, owned by an enthusiatslc Iem here of tourists or visitors coming volunteer, was engulfed by an Incoming to the town who are not aware of the tide, and had to be dragged to safety local hazards. We have an increasing by the shire council's new £9,000 grader. problem here with these boats which come down on trailers. In the majority The machine was then used for several of cases they are launched in the still hours salvaging two fishing boats owned waters of the inland. It seems that be­ by K. Cotter and H. Litchfield and a fore they go very far their first aim Is large launch owned by A. & D. Birkbeck, to get out Into the open water and to of Cottesloe. do that they must navigate our bar. Blrkbeck's launch, washed up close to This bar has been a contention with Cotter's craft, was first hauled to safety. Mandurah as long as Mandurah has been Then Cotter's boat, after unsuccessful Mandurah. We do hope that perhaps in efforts had been made to move Litch­ your findings you might be able to assist field's boat. Several hours were spent on us in our endeavour to have this bar salvaging Mr. Litchfield's craft. improved and made a permanent open­ Safety: All equipment, mast rudder ing. The Government is working on the and engine were removed to lighten the project now, we understand, but how drag on the grader. At 3.30 p.m, this long it will take, we do not know. You craft was finally hauled to safety, al­ are probably aware of the fact that If though big waves were stiil washing into we do not keep pushing we do not get the estuary, threatening to make a new anywhere. The bar varies from day to entrance on the south corner. day and, at times, it is closed right up while at other times there is quite a Later, craft owned by Cotter and Birk­ respectable opening. beck were moved into the safety of the estuary waters, but Litchfield's boat was We consider that if there were a per­ taken to a sllpway for necessary repairs. manent opening, Mandurah would assist the State in the fishing industry. It has Mr. K. Cotter said his 22 ft. boat had a marvellous potentiai and offers a safe dragged two anchors. anchorage between Rockingham and Bunbury. We feei that if this opening Absent: He was absent in Perth when or anchorage were Improved it would the blow struck, and had been unable assist the fishing industry because boats to moor his craft in the estuary due to Which now have to operate from Bun­ the shallow bar. bury or Fremantle couid make Maudurah Messrs. D. & A. Birkbeck said their their base and so be saved many miles boat, 22 ft. long, 6 ft. 6 in. beam with of travel, because a lot of fishing is done inboard marine engine, had been moored due west of here. They would be able at Hall's Head for the past two months. to come in here and truck their fish to To them the unseasonal north-west blow market rather than take it in their boats was unexpected. back to Fremantle. We have opening 20

here shortly a fish-filleting works and sympathetic, and as helpful as possible, we feel that this will need more fish an exposed corner near the Navy berth from the deep waters rather than rely was all that could be offered, and dam­ on what is caught in the inland waters. age has been sustained. (Trans. pp. 371-372.) At Rockingham the same conditions The case for safe anchorage for small have prevailed in bad weather and craft generally was presented by the witness strandlngs and damage have resulted to M. J. Finn, Commodore, Royal Freshwater many commercial and private craft, In­ Bay Yacht Club, who stated: cluding HMadelon", a 57 ft. auxiliary Although giving evidence on small ketch, and craft owned by men with long craft safety as Commodore of Royal experience and sound boat knowledge. Freshwater Bay Yacht Club, the matters Even after being moved to the Point to be placed before the Royal Commis­ Peron end of the coast, considered the sion are the concern of kindred yacht safest section, craft have still encoun­ clubs and have been discussed with tered trouble. These conditions are not officers of Royal Perth Yacht Club, the restricted to winter gales. On several Cruising Yacht Club of W.A., the Clare­ occasions in the height of summer mont Yacht Club, the South of Perth north-east gales have struck the crowded Yacht Club, and the Fremantle Sailing Rockingham anchorage, causing chaos, Club. They concern all users of small strandings and damage, definitely im­ craft. pairing the whole area's boating pros­ pects. Very high in importance in matters appertaining to boats is the crafts' har­ From the foregoing it is evident that bour and mooring facilities. A safe and the major yacht clubs of this state con­ suitable harbour makes for peace of sider thaV boat harbours at Fremantle mind-which is important enough, but and Rockingham are highly desirable In when it is at the termination of a gruel­ the interests of small boat safety. Many ling and possibly fatiguing passage, a of the world's largest ports include these safe harbour becomes a paramount feat­ facilities in their harbour services. use of small craft safety. Those con­ Availability of such anchorages, encour­ nected with local small craft are well ages the ownership of wholesome, sea­ aware of the inhospitable nature of the worthy craft. West Australian yacht West Australian coastline-and the clubs-already maintaining a high stan­ dearth of harbours. It is a matter that dard of safety equipment and regula­ has been brought forward on several tions In their ocean races-are embark­ occasions at this Royal Commission. ing on projects that will insist on even The Fremantle fishing boat harbour higher standards as adopted by the provides a harbour for our commercial Cruising Yacht Club of Australia for the fishing fieet, but cannot offer accommo­ Sydney-Hobart Race. Provision of an dation to private craft. Geraldton and all-weather "outside" anchorage would Bunbury can at present harbour some greatly influence prospective owners and boats-but the unhappy fact remains assist the clubs in their efforts. that for over 300 miles of coastline there * * is not an "outside" all-weather harbour * * for local or visiting privately owned The very apparent overcrowding of the craft whose rig, or conditions, prevents Swan River with increasing danger to them negotiating the Swan River mil boat users as a result, has become a and traffic bridges. This means, of matter of grave concern to all yacht course, that a small vessel that was en­ clubs and to private individuals. The deavouring to find shelter in bad condi­ river is eminently suitable for many tions, on entering Fremantle Harbour types of craft and sailing, both racing would-and has-found only new haz­ and cruising, and all types of boating ards-(large shipping' gets into difficul­ are to be encouraged, providing as they ties in adverse conditions)-and no do very valuable healthy sport and re­ facilities whatsoever. laxation to a large section of the com­ munity in al! age groups. Many boat This is also true of Cockburn Sound owners are willing, and desirous, to sail Where, at Rockingham, in north-east to and moor their craft outside Fremantle north-west gales, small craft, both com­ Harbour, thus relieving crowding on the mercial and private, find not shelter, but river, and adding to boat safety. The a dangerous untenable lee shore awaits obstacle to boat safety outside the har­ them. bour-complete lack of safe anchorages Over the years, many unpleasant and -prevents this move. often dangerous dramas have been acted out by local small craft with no option It is submitted to the Royal Commis­ but to enter the harbour in bad weather. sion that the provision of safe, all­ These conditions have been highlighted weather anchorages, outside Fremantle when yachts from overseas, or other Harbour are of paramount importance States, have been in local waters. These to smal! craft safety. They would pro­ craft have followed correct procedure in vide safety to al! types of small craft in applying for berths, and although Fre­ adverse weather conditions and greatly mantle Harbour Trust officials have been assist in the prevention of loss of lives 21

and property. They would help In the be shelter where a boat drawing 8 or enjoyment of healthy sport and relaxa­ 9 feet of water could get in and lay up tion, and would be at all times an asset during a blow. to this State and, in times of Nationa! Can you suggest any suitable places stress, a National necessity. that could be converted on these lines?­ (Trans. pp. 1958-61.) I would suggest Dongara, for sure, 'for On the question of finance he stated­ one; south of that, or north of Port Gregory. I would leave it to the Without doubt the only body capable engineers. of financing breakwaters, groynes, and dredging is the State Government ... Why would you say that was neces­ sarY?-I think the prevailing winds So far as the clubs ,were concerned, probably this time of the year are on­ their funds would be needed and ex­ shore. They blow from west, nortn­ pended in the provision of pens, slip­ west to south-west, and if a boat did ways, jetties, etc., when the actual happen to spring a plank or get into a breakwaters and groynes were erected. bit of trouble and he couldn't punch in (Trans. P. 1961.) to his home port, there would be one Further information supplied by Mr. Finn north and south that he could make for relating to the post war period showed that and it would stlll be in striking distance. Western Australian yachtsmen had a most Do you find it necessary to continue impressive record of wins in Interstate fishing during these bad winter months? Championship events including internationai -No, I haven't the last two years; but classes such as dragon, fiying dutchman and I can sure understand why some people do. It is purely and simply financial. sharpie. Wins in the 16 ft. skiff, 14 ft. dinghy, V.J. and other smalf boat classes (Trans. p. 1505.) have been prolific. At World Championship Another witness, coxswain James Bailey, and Olympic level Australian yachtsmen have President of the Denison Fishermen's Asso­ had spectacular successes with 5.5 metre, ciation, gave the Commission the following dragon, flying dutchman and sharpie classes, evidence regarding speeds of fishing boats with perhaps the most outstanding of all be­ and travelltng times: ing the Australian designed and constructed "Gretel" and her challenge in an Amel'ica's By the Commissioner: What would be Cup series. Further challenges are pending the average speed in the water of these in the America's Cup and the Fastnet, the boats you are talking about that operate British blue riband ocean race. These out­ from these anchorages?-They vary over standing achievements in sailing by a quite a large range, but I suppose 8 country with such a small population brand knots would be the average. Some do 15 Australians as a seafaring people of no mean knots and some only 5 or 6 knots, but ability worthy of encouragement equal to the amount of speed you can use in such achievements. these small boats is governed by the weather conditions that prevail. It is evident that Western Australian yacht and power boat owners deserve further help You think it better to hop out and in the matter of the range of their coastwise get your pots and come back again and cruising because of the value of sail and save quite a number of hours?-Yes. At power boat yachting as the nucleus of a the moment I am anchored at Cliff Head, maritime defence force, as an economic and which Is only 20 miles from Dongara, social asset, and as a matter of international but with prevailing northerlies I have to standing and goodwill. To be able to range go home against a north-west wind. with safety as far south as Bunbury or I feel this is a needless question, but Mandurah and as far north as Lancelin for the sake of people Who have not had Island in short term coastal cruises would the opportunity of studying the position add welcome relief to the owners and crews like I have over the last couple of months, of the splendid vessels, now confined to Rott­ what is the necessity for men to fish nest and Garden Islands, or to non-stop at this time of the year?-To make racing southwards and return, by the lack money, I should imagine. Last week 1 of safe and suitable anchorages outside caught 1,200 lb. of crayfish which works Fremantle. out at quite a few pounds. It is better to do that than to walk around the A depth of 10 ft. at low tide would be streets of Geraldton doing nothing. sufficient to fioat the largest vessels on Yacht club registers, or registered as fishing boats, It is better for the country?-Yes, It is in smooth water anchorages. better to keep working. You have three months in which to get your gear ready. A fisherman witness, coxswain Gordon (Trans. pp. 1502-03.) Schramm, gave evidence regarding the neces­ sity for establishing safe anchorages at On the matter of small boat anchorages reasonable distances apart along the coast. generally Captain C. Hartley, Harbour Master He said: at Geraldton, stated: Secondly, that ports be established 50 Except in main ports there are prac­ miles apart all along the coast. They tically no navigation aids for small craft need not necessarily be big boat anchor­ on this coast other than those the fish­ ages like the steamers, but they would erman themselves have erected. There 22

are no plans or charts of the smaller Because of the scientific fact that the habi­ anchorages which indeed have been con­ tat of crayfish, [ewftsh and usually snapper sIdered untenable in most cases until the is the reef formation offshore along the west enormous increase in the number of fish­ coast, reef fishing whether on deep or shal­ ing vessels over the past five years has low reefs will continue. No authority what­ compelled them to spread out over the ever would keep fishermen away from fish whole coast. IMany of these smaller an­ waiting to be caught during the season. chorages require navigation aids, either day markers or lighted beacons and there Mr. McKimmie bestows upon small boats is an urgent need for charting of many the title of "worst offenders" and he has the of the anchorages. (Trans. pp. 7-8.) information at his disposal to support this [udgement. He volunteered the following Entering and leaving unlit exposed anch­ suggestions: orages at night in bad weather poses a con­ stant threat to the best of skippers and their A great number of losses are sustained boats. Such working is unavoidable for all by the smaller type of craft. I would deep water fishing vessels operating along suggest that no vessel be granted a fish­ the coast north between FremantIe and ing licence until it has been granted a Geraldton or south between Fremantle and certificate of seaworthiness. This would Bunbury and north of Geraldton to the require some re-organisation as survey Murchison River. The recognised coastal certificates issued by the Harbour and anchorages used by fishermen and still un- . Light Department are staggered through­ lighted, in this stretch of coastline are: out the year whereas Fisheries Depart­ Murchison River, Port Gregory, Horrocks' ment iicenees fall due on the 1st of Beach, Drummond's Cove, Denison, Cliff' January each year. Head, Freshwater Point, Knobby Head, I would suggest a total ban on boats Beagle Islands, Snag Island, Green Head, under 18 feet in length overall, and boats Fisherman Island, Jurien Bay, Cervantes propelled by one outboard motor. Also Island, Green Islets, Wedge Island, Ledge in future a minimum length of 25 feet Point, Cape Leschenault, Wreck Point, Yan­ overall be placed on all new seagoing chep, Eglinton Rocks, Rockingham, Safety fishing vessels. At this stage it would Bay, Mandurah and Cape Bouvard, (Trans. not be possible to eliminate this class of p. 1896.) On account of the movement of craft completely as 286 vessels out of a boats Irom anchorage to anchorage it is not total 850 are under 25 feet overall possible to give the number using each one length. (Trans. p. 707.) with reasonable accuracy. A total ban on boats below a certain length Item 2. Vessels Dumpecl in Breakers Neal' would provide the only reasonably practical Reefs. method of control which could be policed, Casuaities of this kind make up 24.5% of that is, by eliminating undersize vessels at the total and rank second highest in number. the survey point or shore base. Perhaps it They are usually accompanied by loss of life. would be practicable to confine the operations The witness McKlmrnle, Harbour & Light De­ of small vessels to certain areas, e.g., the partment Sl1l'veyor, made the Iollowtng COI11­ Abrolhos, or to the inshore reefs, but it would ments: be virtually impossible to police a regulation This percentage has increased greatly confining vessels below a certain length to in recent years due to the greater n1.U11­ a certain distance off-shore. In the event bel' of fishing boats operating and fish of a prosecution proof in Court would be a being harder to get, also the financial difficuit matter. The suggestion that 25 feet liabilities S0111e fishermen have, forcecl would be a satisfactory minimum length for them to attempt to obtain fish irrespec­ new vessels, or 18 feet for vessels now operat­ tive of the risks involved, inexperienced ing however is completely unacceptable. The and careless ftshermen now take their evidence, supported by the observation of craft into dangerous waters to find fiSl1 the members of the Commission, has shown and through passages full of hazards that boats as small as 14 feet can be success­ which a few years ago the more expert­ fully and safely worked in shallow reef areas, enced men would not consider using. provided that they are seaworthy and in Smaller type craft are the worst often­ the hands of skilled operators. A seaworthy del'S in this respect. (Trans. p. 706.) boat of between 14 feet and 18 feet in length could even have decided advantages of a Item 3. Vessels Striking Reefs. larger vessel in shallow or restricted water­ Casualties under this heading make up ways. 15% of the total and rank third highest in number. They are frequently accompanied The seaworthiness of boats and the com­ by loss of life. The witness, McKimmie, petence of their skippers and coxswains is made the following comments: already under the control of the Department. Steps will be recommended for catching up Causes of these losses are similar to with boat owners who avoid annual surveys, previous item, that is, taking craft into or who allow their vessels to proceed to sea waters where a good seaman would hesi­ in charge of unqualified men. Regulation tate to go. Also included are vesseis 37, of the Manning of Fishing Vessels, as it which have struck reefs due to faulty now stands, provides inter alia, in respect na vlgation or lack of local knowledge. of a candidate for a coxswain's certificate of (Trans. p, 706.) competency that: 23

(b) He must have had no less than 2 It seems fair and approprtate at this point years service as deck hand of which to quote extracts from the police report one year must have been as deck concerning the loss of the vessel "Carol Lee". hand of a vessel proceeding outside The quotations follow: harbour limits. Service in respect About 1.30 p.m, on 20th November, of the second year would require to 1961, George Siggs of 18 Davllak Road, be considered satisfactory. Hamilton Hill, reported to Beaconsfield * * * * Police that the fishing boat "Carol Lee" (d) He must understand the manage­ owned by him, with 9. crew of three, ment of fishing vessels. was overdue at her destination at Green Island. (e) He must have a working knowledge of the compass and be able to steer The boat had left Fremantle about by same. 12.40 a.m, 18/11/61 and expected to make the trip in 15 to 16 hours, (f) Questions relating' to local knowledge and seamanship generally will be Some floats and ropes identified as part asked. of the equipment carried had been picked up in the sea off Rottnest Island. These mildly worded provisions give the The boat carried cray pots, timber, examiners a very Wide discretion. To under­ corrugated iron, rope, floats, fuel oil, stand the management of fishing vessels; to lubricating oil, an 11 ft. dinghy, two have a working knowledge of the compass 65 lb. anchors and a quantity of food, and to steer by same and to be able to answer personal gear and bedding. any question relating to local knowledge and seamanship call for cons~erable skill on the some material, identified as off "Carol part of the candidate. The Western Aus­ Lee" W9.S found between City Beach and traltan Marine Act and' Regulations there­ Scarborough on the 21st November, 1961 under give surveyors an equally wide discre­ and the Department of Meteorology tion In the issue of a certificate of seaworthI­ contacted for advice as to winds, seas ness. Provided that examiners and surveyors and tides to see if the boat would be do not exercise their powers arbitrarily and located if adrift. that they take note of modern developments, Search by Police along coast from they are in complete control of the com­ Yanchep to Long Point continued to 27th petency of a skipper or coxswain and of the November with negative results, apart seaworthiness of a vessel for the purpose for from finding of 20 cray pots and 300 ft. which an owner intends to use it. 'The quali­ rope. fications required of skippers grades 1 and In view of lack of debris found it was 2 are substantially higher than those re­ thought boat did not strike a reef but quired of a coxswain and likewise leave no foundered in deep water. room for incompetency. It is the duty of the surveyors and examiners to be uniformly The search was called off on 30th strict. The heavy loss of life and property November aftcr thorough search by during the last 5 years leaves no doubt as boats, aircraft both R.A.A.F. and Civil, to the degree of strictness required. It is and Police. not suggested that there has been any lack On 20th December, 1961 a fisherman of diligence on the part of the technical staff named Mills advised he had found 9. of the Harbour and Light Department. There cork float in the water off Rottnest which has been a phenomenal growth in both the was attached to a heavy object. He seagoing tourist and fishing industries during marked the position. the last decade.jbut the Department has been Police skin divers in the Harbour boat most inadequately started and equipped to "Oormararit" went to locality with Mills cope with statutory requirements relating to and found "Carol Lee" in 55 feet of vessels in use. water on sandy seabed; she was still It is unlikely that casualties due to swamp­ loaded with most gear, some sheets of ing by breakers or to striking reefs will ever iron and cray pots dislodged. be eliminated but they may be minimised The gear lever was in forward position. by capable men, using sound vessels with No bodies were found. constant caution and sea sense. The boat was subsequently raised and Items 4 and 9. Casualties-Causes Unknown moved ashore. and Overloading. Subsequent to examination by the Casualties under the heading of causes Underwater Squ9.d it was found the unknown make up 13 per cent. of the total. "Carol Lee" was carrying 85 cray pots Mr. McKimulie's comment \Vas- which, together with timber, iron and In all cases it can fairly be said that other goods, could have weighed in the they were due to the previous three vicinity of 4 or 5 tons. causes and in addition, overloading. Despite diligent search of sea and Known cases of overloading make up 1.6 coast, no trace was found of the crew per cent. of total casualties. In a number members who, in the absence of proof of cases of losses attributed to unknown to the contrary, are believed to have causes it has been accepted as being beyond drowned on or about the 18th November, reasonable doubt that the vessels foundered 1961 when the fishing boat "Carol Lee" as the result of overloading. sank. 24

The cause of the disaster is unknown. months ago; one of the young fellows The boat did not have a compass, down here tried to cart the same load of steerage was by lights only. wet pots as when they were dry, and consequently the boat turned over. He The oniy assumption which can be was an hour and a half hanging on to arrived at is that the skipper reached the boat before any fellow came along, open and rougher water sooner than and by the time we got there it had anticipated in a 11e\'! boat he was not gone to the bottom. That was because familiar with and was engulfed by waves, of overloading, by putting on the same being fairly low in the water by reason number of wet pots as If they were dry, of the load carried. and it was nearly double the weight. Casualties due to overloading have been (Trans. p. 158.) attributed by witnesses to the following specific causes: Re 3. (1) The outlet for a leaky self-draining If you have a full knowledge of the cockpit being lowered to below water weather I think you can take a risk occa­ level; sionally by putting a good load on pro­ vided you have the seamanship behind (2) The same maximum number of wet you to know when this can be done. It pots and lines being carried as when is possible to put a load on prior to the the pots and lines were dry; sea breeze coming in and when it comes (3) A maximum fine weather load of in it hits you so fast that unless the pots and other gear being carried load Is properly secure you get into on a rough day; trouble. Once a load shifts you are gone. It must be seamanship that determines (4) The weight and/or height of the how much load you put on. (Trans. p. load adversely affecting the stability 1121.) of the vessel; (5) The unsuccessful taking of a calcu­ On rough days we never shift gear. I lated risk. put 15 pots on my boat, and on rough days we just pull and drop. (Trans. Some evidence on these particular matters p. 179.) Is quoted hereunder: Re 4. Re 1. Overloading of vessels, partlcularty By Captain Woodcock: I would like with deck cargo, tends to dangerously re­ to ask Mr. Travia's opinion as to self­ duce their buoyancy and stability. This draining cockpits as far as the fisher­ is especially the case with boats con­ men are concerned?-I think a self­ structed of bondwood and built In weil draining cockpit is a death-trap because deck fashion with wheel house forward. it is only a few inches above the water These vesseis are usually 25 to 30 feet and unless the cockpit is 100 per cent. long, 11 to 12 feet beam, of negltglble sealed it is going into the bilge of the draft, with approximately 2 ft. 6 In. free­ boat. The drain Is only two or three board, and with bulk of the cargo stowed inches above the surface of the water. abaft the thwartships centre line. Ves­ The idea is that any water that comes sels of this type become exceptionally into the boat leaks out, but I doubt if "cranky", so that with a comparatively builders can get them that tight. I think small side slop or a running sea they be­ some of the water must leak in. In the come unmanageable, hence they are case of a new boat It Is quite possible easily swamped or capsized. there Is a gap somewhere and the boat would just fill up. By the term "cranky" I mean that when these boats are overloaded ... from There is another point there: I think amidships aft and travelling with a fol­ fishermen, when they are going to lay lowing sea, when a swell commences their pots load the boat up with pots trom the back of the boat and lifts it for­ and very often put their actual outlet ward the back of the boat swings on the for the self-draining cockpits under the water and pivots and this, together with water?-That is correct. the side slop, dips the aft end of the boat. From my experience, once they get (Trans. pp. 1771-72.) the deck covered with cray pots without an inch to spare anywhere I am sure In my opinion the whole trouble with they cannot see what is going on with overloading is the height they load. As self-draming cockpits?-That Is correct. you know, If a boat is loaded on the (Trans. p. 35.) decks, say, two pots high, it gives you good stability, but the higher you go the Re 2. more sway you get and that is where Another thing: yesterday here there the danger comes in. I have a 32-ft. was a question asked about the loading boat now and I load 35 pots and the boat of pots on a boat and the different does not push down much more than an weights. You can put twice the amount inch deeper in the water; but if I go of dry pots on your boat as you can pots four pots high, then I get sway and that that are wet. This was some twelve is the real danger. (Trans. p. 441.) 25

Re 5. predictable, and a vessel's safety when It has been suggested that you can pots are being hauled (from the side) overload a boat with outriggers. You can depends on her reserve buoyancy and on overload a boat without an outrigger: her recovery moment. Normally a fish­ I have done it myself. My boat can take erman is well aware of these factors but perhaps 30 pots but I have taken 50 on if he has other pots aboard, improperly it. I have taken a chance and I have stowed, his safety margin is decreased. been lucky, but I still use discretion or The chief risk occurs when pots be­ I take a calculated risk, whichever way come fouled, particularly as this gener­ you like to term it. (Trans. p. 325.) ally occurs under somewhat dangerous There have been cases, as you no doubt conditions. When pots become fouled know, of boats being lost through over­ there is a general tendency either to loading. Do you consider that the work toward the stern, or to circle to policing of vessels in regard to overload­ find a freeing angle. In either case the ing should be carried out by the depart­ vessel tends to dip on a stern quarter. ment, or do you think it should be left Under the wave and swell conditions to individual skippers?-They say the sky which exist over reefs and rock ledges it is the limit. I think there should be is common for waves and swell to fol­ something brought in. As you men­ low out of rhythm, and for water to be tioned' boats have gone down through shipped at a time when buoyancy and being overloaded. I myself do not know recovery are at a minimum. Good sea­ how many pots I ean earry. Perhaps manship can avert disaster but toward the department should be able to say to the end of a day'S work that quality is me "Cornell, you can carry 20 pots and not always present, swiftly. I believe that is all." If I carry 30, I shouid be that this risk has been responsible for fined. I have loaded my boat up to save several of the unexplained boat losses in another trip. I will be honest. I have recent years. stuck 28 on it three years ago and came The most worthwhile proposition for con­ through this channel. It was not bad' trol of overloading has been put forward by it Is not like what it Is today. I ofte,; Mr. McKimmie of the Harbour and Light thought afterwards what a goat I was. Department. He suggested the appointment I think something should be brought in of a person with the qualifications of a naval on the size of the boat and the freeboard architect to the staff of the Department to because as you stated, and we know, study all plans and specifications of new overloading has caused loss of boats and constructions, calculate stability curves for lives. (Trans. p. 1543.) each vessel and allot the maximum number Dr. Sheard has submitted the following of craypots to be carried and the height of interesting facts and theories on overloading: such loading. He estimated that it would (i) Transport to Fishing Grounds: Al­ take one person working on stability calcula­ though the number of pots in use by tions alone, four years to cover the existing each vessel is now restricted by regula­ fishing fleet. This suggestion will be em­ tion, their size and shape require them bodied in the recommendations contained in to be carried as deck cargo. the report. It would be possible for the ship surveyors to assist in and expedite the load Effects: The weight is considerable and and height calculations for the existing fleet the vessel's trim, particularly fore and under the direction of the naval architect. aft, is altered. The free-board wind resistance is in­ Other suggestions made by witnesses in­ creased and unpredictable drift is pro­ elude the checking of all vessels for over­ duced. loading at a check point before they leave their respective anchorages, the marking of Free space on the vessel is restricted vessels with load lines, and the allowance and is often insufficient for its proper of days of grace at the end of the season for working, particuarly as ropes become un­ lifting and returning craypots to the shore stowed in heavy seas. Life saving de­ base. vices become inaccessible (and are often left ashore). The checking of loads would naturally fol­ (ii) Transport Between Fishing low any attempt to curb overloading and Grounds (or Reefs): The aim here is to would require inspection at sea as well as at re-set the pots, generally within a limited anchorages. This matter is associated with period. Consequently pots are stowed, the provision of additional staff, and patrol less with an eye to the vessel's trim but vessels and vehicles for the Department. It rather to pot accessibility and ease of re­ is felt that the marking of small vessels with setting. The risks here are obvious, par­ a load line would be of no practical value on ticularly when it is realised that the account of their tendency to dip and roll in water logged pots are now upwards of a choppy sea. The allowance of days of grace at the end of the season would be a matter 50 per cent. heavier. for the Fisheries Department. However, this (iii) Pot-hauling: The amount of risk Commission is of the opinion that the same taken when hauling pots in reef areas is fishermen who try to shift the whole of their considerable. Swell and breaking wave pots on one day would continue to do so, days incidence and direction is not always of grace notwithstanding. 26

The capable skipper or coxswain wlll con­ for 18 months with the boat and that all tinue to use the trial and error method of the side of the boat could have given way load calculation, with the usual appllcatlon without any trouble whatsoever. (Trans. of sea knowledge and sea sense without seri­ p, 173.) ous consequences, until official determina­ tion of the load llmits of his vessel. There is very little Which can be done about a vessel striking floating objects except con­ With regard to other losses for causes un­ stant vigilance by the watch on deck. Un­ known, it can only be hoped that stabilisa­ fortunately the seaways of this coast seem tion of the fishing Industry coupled with bet­ to be a dumping ground from the rubbish ter training of seafaring personnel, better and waste dunnage trom ships that pass. navigation aids, better shore faclllties and Temporary man-made obstructions should better compliance with safety requirements be removed by the person or public author­ will substantially reduce the tragic losses of ity responsible for their creation in the first ships and men. place. The Shark Bay fishermen have com­ Item 5. Casualties due to Leaky Vessels. plained about temporary markers still ob­ This cause has accounted for 6.5 per cent. structing the channel to Useless Loop. In of the total losses of vessels. Mr. McKimmie the same category are abandoned jetties and comments: private loading wharves. Ftsherrnen at vari­ ous anchorages have complained about the Leakage has been caused by a number fouling of channels and entrances with cray of reasons, i.e. striking floating objects, pot floats and lines. If and when the De­ damage by craypot fioats, and sprung partment becomes possessed of seagoing seams in heavy seas mainly to fast ply­ patrol vessels drastic action should be taken wood craft which have driven into big to remove this menace and the regulations seas at a greater speed than they should should bind the Crown. be. To this llst of reasons could be added faulty / It is hoped that faulty construction of construction. Evidence relating to such an vessels for both commercial and private use occurrence was given at Dongara by a fisher­ will be overcome if recommcndattons, which man, coxswain J. A. Henneberry: will be made for the enforcement and The point I would like to bring up is strengthening of existing regulations, are that my boat was sunk last year in the adopted. / bay on one rough afternoon. I think it In addition to the study of plans and speci­ was only just over 12 months old at the fications of new construction by a naval time and when I pulled it home and in­ architect, Mr. McKimmle has suggested spected it all the timbers on the side supervision of new construction. He has also of the boat were nailed together with suggested that surveys be carried out only at 1-! in. copper nails. They were not even ports where slipping facilities are available, roved. so that vessels may be inspected out of the * * * water. These suggestions will be submitted It was a sealed-deck boat, a 25-footer, as recommendations in the report, to come built by a firm in town for the crayfish into effect with the establishment of safe industry. I have since put the mat­ .anchorages with slipping facillties. Need­ ter in the hands of a solicitor. It cost less to say the construction and use of me about £900 to refit and fasten the sltpways is impracticable at exposed anchor­ boat properly. There were places along ages. the keel, up to 2 ft. where there was not The danger of buying' ready made boats a nail or a screw in it. by description or appearance, was stressed By the 00111111188ione1': When yon say by a Witness, nsherrnan, J. Vitenberg, of "in town" do you mean the metropolitan Port Sanlson. He stated: area or in here?-It was built in Perth. I would think that any new boats that People that buy boats for their own are being built should be inspected like use buy only light boats suitable for these a house. When the frame is put up the waters and they should be msnected in Harbour and Light Department should Perth or other parts In the soutt. before inspect it and make sure that the boat is they are sent up here. People see boats properly fixed and fastened. At the next advertised and the price appeals to them, stage, when the bondwood or planks are but when the boat arrives here it could fastened, another inspection should be be a trap because they are very lightly made. Some of these firms are getting built and could be a danger In them­ on the band-waggon, as one might say, selves when they are taken out and then and when the crayfishing was good and other people would have to go and search everyone was trying to buy and sell boats for them. A person might say, "I will in an effort to improve ourselves, the go up to the Island", or somewhere else, quicker they slapped them together the but if any bad weather blows up they better they llked it. The firm from whom could be trapped very easily in a craft I bought this boat was a reputable firm of that type. and I was surprised when I saw the Have you seen any examples of that? workmanship in it. I saw them and they -Yes, I saw one example about three said, "It is too long in the tooth for us." weeks ago with a, boat that was pur­ I told them I had been risking my life chased from. .. It was about 12 ft. long 27

built of 3jl6th inch plywood. The nails Evidence also established that petrol en­ were about a foot apart and it was nicely gines properly safeguarded are quite service­ varnished. I would not step into that able and, in some cases, have certain advan­ boat myself to paddle from the jetty to tages, for example, where speed of accelera­ the shore. Probably the matcrial was tion and movement are desirable. The in­ first grade, but knowing the conditions board petrol engine, the inboard-outboard around here, the boat was too light. and the outboard engine are distinctly use­ People pay the freight and the tax on ful when working craypots in shallow reef these boats bought from the south and areas by the pull and drop method, or deep they go up into the creek, or out to the sea fishing close to shore in habitually rough islands, and if a strong breeze blows up waters such as on the Naturaliste-Leeuwin they could be swamped in no time. stretch of coastline. You are all in favour of these boats Items 7 and 8. Casualties due to Engine being surveyed?-Yes, my word: They Failure and Stalling and Mechanical should be surveyed before they are sold Faults. at the other end, because the people up These causes make up 4 per cent. and 3.3 here do not know how the boats are built. per cent of total casualties respectively. Mr. The battens are just put together with MeKimmie's comments, with regard to plastic glue and copper tacks a foot apart stalling, were: and it may look good but it Is not safe. That is something that should be looked Whilst the above is the main reason at from the production side. That is, a for these vessels being lost, in most cases survey should be made before they are it would have been avoided if the ves­ sold; especially in regard to boats that sels had more Sea room at the time of are sent up here. (Trans. pp. 1681-82.) failures. No allowance is made for fail­ ures such as this, that is, the vessels are in dangerous water before faults can be Observation during inspections along the rectified. (Trans. p. 706.) coast from Esperance to Point Samson con­ firmed the truth of this evidence. With regard to mechanical failures he said: Engine failures in this Item are major Item 6. Casualties Caused by Fire and Ex­ engine breakdowns, electrical faults plosion. such as fiat batteries, faulty starter This cause has accounted for 5 per cent. motors, and also steering gear damage of the casualties. Mr. McKimmie's com­ or failure. (Trans. p. 707.) merits: If the engine or engines and all ancillary By far the majority of cases have oc­ appliances were sound and in good working curred on craft driven by petrol engines, order when the vessel left its anchorage caused mainly by lack of care when there is little that can be done about guard­ fuelling, that is, by spilling the fuel into ing against all of the mishaps that can occur bilges and the carriage of reserve petrol in the field of mechanical propulsion. If in tins and drums which eventually rust the engineer surveyor has carried out his out and back into bilges. Poor ventila­ duties diligently and if the owner of the tlon accounts for a small proportion. vessel keeps the engine and ancillaries In (Trans. p. 706.) trim between surveys it follows that failures will be reduced to a minimum. Snap in­ Evidence taken at all centres has Con­ spections would help to keep owners and firmed the danger arising from the use of skippers up to the marl" petrol as fuel without strict accompanying It sounds fatuous to say that a good work­ precautionary measures. These precautions, ing kit of tools and an adequate supply of which are listed hereunder, are simple but spare parts should be carried at all times, or effective and apply to all liquid fuels: that at least one member of the ship's com­ (I) The carrying of the prescribed fire plement should be able to detect faults and extinguishers in easily accessible carry out running repairs, but the evidence discloses that all of these features are miss­ positions clear of the danger zone. ing in instances too numerous for compla­ (2) The complete banning of plastic fuel cency. There again, apart from education lines in favour of copper. and sea sense, snap inspections seem to be (3) The fitting of an efficient valve at the only corrective. the fuel tank outlet. Standing out like a beacon is the need for (4) The adequate ventilation of all en­ every vessel to have an auxiliary means of gine compartments to the atmo­ propulsion, even oars alone. In the absence sphere. of mast and sails, a reliable outboard motor or a set of oars, or both, could propel a ves­ (5) The carriage of fuel in sound Con­ sel out of hazardous waters or a tricky tainers or tanks of prescribed ma­ channel. A good anchor and a long length terial at all times. of rope would hold a vessel where there was sufficient sea room. Insofar as these matters It is recommended that these precautions are not already covered by the regulations be made compulsory by regulation for all they will be the subject of recommendations classes of vessels. accordingly. 28

statistics of deaths from accidents com­ other. Nevertheless, it is a notorious fact piled in the office of the Commonwealth that the fising industry has the unhappy Statistician are not related to industries and distinction of being the most hazardous of do not include deaths of persons whose bodies are not recovered. Consequently, it all in the ratio of lives lost to the numbers is not possible to make a statistical compari­ of men engaged, including the mining and son between the fishing industry and any timber industries.

CHAPTER Y.-THE 'l'ERiHS OF REFERENCE.

Part 1. Consideration of statutory prOVISIOns re­ Reference (aJ: "the adequacy of the pre­ lating to seaworthiness and safety equipment sent Ieglslation (including regulations would normally divide itself into two parts, thereunder) concerning seaworthiness of firstly, concerning provisions which are now and lifesaving equipment to be carried law and secondly, concerning provisions in the ships and any improvements con­ which would be desirable improvements. sidered to be desirable." However, this approach is not practicable in the present case because some existing en­ Briefiy stated the present legislation and actments and regulations are not being regulations are inadequate concerning the enforced, while these and others now exist­ seaworthiness of and life saving equipment ing require slight amendments only to effect to be carried on commercial ships which pro­ the improvements desired. I refer by way ceed outside Inland waters. Substantiai im­ of examples of non-enforcement to the con­ provements are desirable. Nevertheless the troversial subjects of life rafts and two-way majority of the recommendations in this radio telephony, covered by regulations 75 Report will concern the enlargement, ampli­ and 99A, respectively, of the Survey and fication and enforcement of existing statu­ Equipment regulations. tory requirements. Where it is necessary to bring regulations up to date or to prescribe I propose now to deal with the various sub­ more modern equipment recommendations 1111ss10118 made to the Commission in the have been made accordingly. order of their discussion by my advisers and myself in private session:- Concerning private vessels, which proceed outside inland waters, the desirable improve­ Anchorages. ments are greater, but a very important The importance of coastal anchorages to beachhead has been established by the pro­ seagoing vessels has been discussed in the mulgation of the Navigable Waters Regula­ preceding' chapter of this Report. Appro­ tions, as reprinted up to 16til December, 1963, priate recommendations will be made at a and the establishment of a registry of ves­ later stage. sels to which these regulations apply. As stated earlier upwards of 8,000 vessels have Illumination. been registered. Witnesses have stressed the need for ade­ The enforcement of the regulations has quately illuminating boat harbours to ensure been hampered by the inadequate staffing safety of movement and to guard against of the Harbour and Light Department, which acts of pilfering and vandalism committed will be dealt with in the next part of this on berthed and moored vessels. The Police chapter of the Report, and the difficuities Department is also concerned with this prob­ confronting departmental officials in prov­ lem which is present at all sea and river ing allegations in support of prosecutions. anchorages. The danger likely to arise from The surveyors and inspectors have been han­ interference with vital safety appliances or dicapped and hampered by the complete lack fittings is only too apparent. of oceangoing patrol vessels, and vehicles capable of transporting them to isolated an­ Wherever electric current is available chorages. anchorages should be adequately illuminated and the Commission recommends accord­ It is likely that the regulation making ingly. powers contained in sections 17, 204 and 207 of the Western Australian Marine Act will Speed of Vessels. not be wide enough to embody some of the Complaints have been general from wit­ recommendations made in the Report. How­ nesses regarding the rapid movements of ever, it is a matter which may well be left to vessels within enclosed anchorages causing the draftsmen at the Crown Law Department berthed vessels to bump and strain on moor­ if the recommendations are accepted. Some ing lines resulting in damage. Regulations difficulty could be experienced in this regard 48 and 48A of the Navigable Waters Regula­ by the restriction of certain parts of the Act tions already provide for speed limits in and regulations to "coast trade ships" and "navigable waters", which are confined by "harbour and river ships." The wording of definition within the 3-mile limit. regulation 2 of the Regulations for Swing'ing Ships leaves some doubt as to whether the It is considered that the speed of fishing regulations apply to fishing vessels. It is vessels within all protected anchorages generally interpreted by the Department so should be limited to 5 miles per hour and to apply. the Commission recommends accordingly. 29

Auxiliary Propulsion. good luck and thirdly, upon the rapidly in­ . Apart from vessels working or travelling creasing number of small trailer born vessels III groups, the only effective method of pro­ using coastal seaways. viding for immediate relief in the event of a breakdown In the usual method of propul­ Appendix "D", annexed hereto, is a list of sion Is for the vessel concerned to have on such tragedies which have occurred since board some auxiliary or alternative means of January, 1959. Rivers and estuaries have not propulsion. It is recommended that all been excluded because the perils of a large fishing vessels should be compelled by regu­ arm of the sea are similar to those experi­ lation to carry oars and that those vessels enced off-shore, A choppy sea of a swift not powered with twin engines or fitted with flowing current is a hazard to a small, over­ a mast and sails should be obliged to carry loaded boat wherever such conditions may an auxiliary means of propulsion to be occur. approved by the Department on survey. At every place where evidence was taken witnesses related experiences of pleasure Unseauiorttui vessels-Faulty Construction. boats in distress. Evidence relating to some The principal sources of supply of vessels of these experiences is quoted from the in the first instance are professional or transcript. amateur boatbullders and dealers. Very little trouble is experienced in the case of Coxswain T. H. Money of Denison, fisher­ vessels built to order by professional boat­ man, stated: builders. Likewise, in the majority of cases, To my way of thinking there should vessels built by amateurs or supplied by be jurisdiction over those to stop them dealers are reliable provided that they have going out owing to the tragedy down been rattntulty built to a proved design. here some time ago. They go out at aU However, with amateur hoatbullders there is hours of the night, in dinghies of per­ a tendency to depart from the original design haps 14 ft. or 15 ft. with three or four men or plan and to ruin good materials with bad in them; and when these men swamped workmanship. Dealers are sometimes in­ and they wanted to undo the engine, clined to effect quick sales, by appearance they found out that the engine screws or description, of vessels which are poorly were that rusted. They had never been constructed and totally inadequate for the turned since they put the motor on, and purposes of the buyer. consequently they couldn't take the motor off; and this ended in the drown­ In the case of all commercial vessels of ing of one man and caused a lot of 15 tons gross tonnage or larger the applica­ inconvenience not only to some of the tion for survey must be accompanied by locals but also to the police force and plans, data and the like to the satisfaction to anyone else. I think the legislation of the Department in accordance with the should be brought in to police that, to provisions of regulation 6 of the Survey and have some jurisdiction over the small Equipment Regulations. All commercial boats. (Trans. p. 157.) fishing vessels are subject to somewhat simi­ Coxswain, C. V. Cartel' of Lancelin, fisher­ lar conditions in accordance with the pro­ man, stated: visions of regulation 64. Private vessels are not subject to either the submission of plans There is one little thing I would like or to survey under any circumstances, al­ to see; A bit of restriction on amateur though private motor boats as defined are fishermen. The last time a chap got SUbject, when in use within the 3-mile limit, drowned here there were 22 boats an­ to limited control according to "the cir­ chored in the bay, aU capable sea-going cumstances for the time being prevailing". It boats, and not one of them left its moor­ is considered essential in the interests of ing; and the skippers of these boats are safety and as a warranty against exploita­ experienced. These other fellows come tion that all new vessels, whether for com­ up here and get aboard and away they mercial or private pleasure purposes, should go. One of our boats went out and picked be subject to a general regulation requiring up the dinghy and pulled it in. He took the submission and approval of plans and the risk of losing his boat, living and specifications prior to construction or sale life, because of some fellow going out in and the Commission recommends accord­ a dinghy where he should not have been. ingly. All vessels in the course of construction You say the fishermen never left their within the State should be subject to in­ moorings. Was it on account of the wind, spection by Departmental surveyors, and ap­ or a heavy swell, or what?-At the time proval as to quality of material and work­ we had had five days of sea. They were manship as well as adherence to plans and quite good days with no wind, but a sea. I so recommend. (Trans. pp. 286-7.) Real' Commodore T. A. Hansen of the Private Vessels. Cruising Yacht Club, Rockingham, stated: The case for the imposition of further con­ I have had occasion to assist quite a trols affecting private vessels rests, firstly, number of people in the past. There was upon the number of tragedies which have an instance three or foul' years ago when occurred during the last 5 years, secondly, five spearfishermen were at Garden upon the number of neal' tragedies averted Island. I was there at the south end by prompt rescue work and an element of of the island. The sea breeze comes in 30

strongly during the summertime and we Ooxswain A. F. Horner, fisherman of decided to come home. We looked back Augusta, stated: and could not see the spearfishermen. We knew they were coming too, so we I have noticed that over the last two went back. Their boat had capsized and years since the advent of the high-pow­ they were in the water; and I feel pretty ered motor there are mere and more fel­ sure one or more could have perished lows going out and they are getting in that accident If someone had not been cheekier all the time. They are now get­ there to do something. It was a hired ting 5 and 6 miles out with 12-ft. power boat probably licensed to carry three, boats. Up to date there have been no but it had five on board together with major tragedies but plenty have been their spearnshing gear, and an outboard swamped out in the bay and plenty have motor. I presume the boat swamped and been towed in. Last Ohristmas there capsized; and if no-one had been there was a husband and wife, a baby and two they would have had to swim for the children out in a 12-ft. boat in a decent shore. This was in the passage off the old westerly and they got swamped a south end of Garden Island. (Trans. pp. mile off Flinders. Fortunately they were 409-410.) seen and were towed In before any fatal­ ity OCCUlTed. But the major problems Skipper grade II, G. K. Smith, fisherman are the ones which are going out 5 and of Busselton stated: 6 miles in 12 and 13ft. boats with high­ I fully agree that pleasure craft powered motors. During Ohristmas you should be policed the same as we are often strike some very nice calm days. with regard to safety precautions. As They do not have a barometer but on a Mr. Harris said, you get up in the morn­ calm day a low barometer invariably ing and find it is not suitable to go out brings a hard westerly. If they have no to do your own work, but in the finish power they have nowhere to go. I would you have to go out to look for some other like you to have a look at the coast from silly fool who has gone out regardless Flinders Bay. You will then realise what of the weather. The day two were lost, I mean. If they run out of power be­ I brought one boat in. We went out tween the island and the coast you have twice that day searching for them In con­ nowhere to go so you go straight down ditions under which we would not offshore. That is why I think there is normally consider going out. going to be quite a problem with the smaller boats. I have no solution. You What was the wind?-South-west, galo cannot police it in small places. I do force. not know how you would go about it. I By Mr. Napier: What type of boat?­ have thought about It quite a bit. In a An l I-tt. very low bondwood dinghy. few years' time it wl1l a full-time job They were last seen one mile off shore looking after these people. (Trans. p. about 4 miles down at 7.30. No-one con­ 564.) tacted us until about 11 o'clock. By the Oommissioner: At night?-No, Ooxswaln 1. W. Overton, fisherman of Flin­ a.m. del'S Bay stated: How many were there In the boat?­ By the Oommissioner: Have you had Two. They asked us to go out and we any experience with amateurs in trouble? went out in the 41-ft. and covered the -I have seen them in trouble-I have area where they were last seen and seen them brought in. I saw two or three there was 110 trace of them. Vie came who nearly got drowned at Flinders Bay back but we were asked to go out again five or six years ago. That was purely about 3 o'clock in the afternoon. I knew and simply through overloading a small that unless we could run right on to boat. A chap and his wife and his son them we would not find them. I knew and his wife and three little children the dinghy could not live in it, but I went out and they were turned over just thought they could perhaps be hanging outside the entrance. A chap by the on to it, and unless we ran right on top name of Thorpe went out and brought of them we could not see them because them in. The old chap was very dis­ once you get 3 miles offshore the water tressed and I did not think he would is so turbulent you cannot see very far. make the grade. We went out about 10 to 12 miles and How about the children?-They were I knew it was hopeless. We turned to all right. The younger people were able come back. It only had grappling and to support them on the keel. 20 ft. of anchor rope. All of them should have at least 15 to 20 fathoms of poly­ By Mr. Napier: They would have all thene or good sisal or nylon rope. If drowned had It gone to the bottom?­ anything does happen they can hang on Definitely; everyone of them. till someone gets them. By the Oommissioner: What was the Where was the boat found?-The boat size of the boat?-About 14 ft. was never found. From the direction It went I think it would be between Bun­ How many people were there altogether bury and Mandurah and probably went counting men, women and children?­ to pieces In the sea. (Trans. pp. 555-556.) Seven. (Trans. p. 599.) 31

Fisherman N. K. swarbnck, of Emu Point, Aerial survey contractor K. L. Watson of stated: Wembley representing the Amateur Flsher­ The year before last one man came meri's Association of Western Australia down-s-we knew him from Perbh-s-and stated: said that he had built a good safe bond­ wood for his two children and that even­ At the moment you just register a boat ing they were going' out spearfrshtng. and you are free to take it to sea and He got into this "good, safe" bondwood, to use it as you think fit. This practice but he didn't iike the reel of it and so has led to incidents on our coasts which he hung on to a launch until he was on are probably one of the main reasons board. Anyway, the boat tipped over for this inquiry. I could quote an ex­ and he lost his wallet. He was very ample. Last year, at Marmion, on one lucky that he didn't drown himself. very gusty easterly morning, club mem­ That's going on all the time. We feel bers refused to go fishing. We brought that no bondwood should be allowed to our boats up on to the beach and we be built unless it Is built to a specified waited for the wind to die down. It Harbour and Light plan. I'm positive didn't so we didn't go fishing. Three that something must be done. People young people-two boys and a girl­ say that It's another iicense that you launched a bondwocd boat from the must pay; but that's nothing. You pay beach. They were asked not to go out, for a car license. You get your driver's but they did. They had an outboard iicense. That's the law and that's it. I motor, but no oars, no bailing tins, and think any man would be in favour of no anchor rope. The obvious thing hap­ something being done. It should be done. pened. They were out for about 10 or We have a iittle bondwood at home. It's 20 minutes and they had a breakdown; 11 ft. 6 in. We take it down the coast. and they drifted out to sea. One lad Last winter, at Cheyne Beach, one load jumped overboard and tried to swim brought ashore twa men, both heavier ashore when he was about H- miles out. than me, and 1,363 lb. of shark In one By that time we had noticed their plight iift-and it's 11 ft. 6 In. long: But some and they were close to 2t miles out to of them come clown, and you have to sea. Two of our boats went out to res­ part your hair in the middle to sit in the cue them. The conditions were very bad. boat; but they still go merrily on their It meant that four members-there are way. My father had hire dinghies for two men in each boat-had to endanger many years. They are extremely good their own lives to go out and rescue these boats. They were licensed, and on each people. As It happened there was a pro­ boat is printed the number of passengers fessional fisherman out there and he got it is allowed by law to carry; and I think to the boat before we did. (Trans. p. that should also be done in the case of 1102.) the bondwood. A certain length should have a certain number of people, and Skipper grade II, Frank Miragliotta, fisher­ they must abide by it, and they must man of Palmyra stated: carry a certain amount of life-saving equipment. (Trans. pp. 636-7.) There was one Incident at the Stragg­ lers. A fisherman came to me and said Guest house proprietor J. T. Swarbrlck, of there was a boat out. It was a rough Walpole, stated: day and there were no other boats out. I realise you gentlemen seem to be My boat is small but I towed that boat mainly interested in the sea, but I feel in. I got out there and there was no on this coast it is a iittle different from soul anywhere. I could not get too close Fremantle and Geraldton because we to the boat because of the reef. I could have estuaries with big sheets of water­ not see anybody on board the boat which and it is deep water. This applies also was about 500 yards from the Stragglers to Denmark and the Albany Harbour. and drifting on to the Stragglers. All We get big seas. So the inland water­ of a sudden a hand came up over the ways offer a different problem to what combing and then his head came to iight. they do up that way. A couple of years I said, "Have you a towline?" He just ago I came on the scene and saved a dropped back into the boat. The chap tragedy which would definitely have been I brought with me successfully, either fatal; and only about a year or so befa";e by a fluke or by the will of God, threw my father did the same job in this a lassoo on to his bollard and we pulled estuary. The one I saved was a iittle this boat ashore. When we got there cockleshell of a boat as big as a "VJ" we found there were five men on board. but not decked in. Four people were in Incidentally, the rope they had over the that boat, which foundered and turned bow had an anchor at the end of it which over because it was overloaded. One of did not reach the bottom although it the chaps I pulled out could not even was only 5 fathoms of water. When we grip my hand and in about another 10 got to the Fremantle Fish Markets they minutes 11101'8 he would have been did not have a rope to tie up the boat drowned. with so I gave them a rope which I had Were there any children?-There were on board. They thanked me, and the two lads about 13 or 14 years of age. next day the boat was gone, with my (Trans. p. 658A.) rope, too. (Trans. p. 1782.) 32

Finally, Naval Architect, L. A. Randell, of our coast line from the pleasure boat Applecross; said this of private pleasure point of view, except at the recognised craft: launching places, anchorages, and what­ I hate to say this but I think there have-you. But If the boats themselves should be some form of control. As a and their required equipment are laid private boat owner I am against too down, surely that must at least minimise many controls, obviously; but I think we the danger. (Trans. Pl'. 1846-48.) have to do something for the safety of The Commission realises that there should the individual. In the U.S. the coast be a minimum of interference with the guard does all this. They do have by­ liberty of the individual and the enjoyment laws laid down for each and every boat of his leisure hours. It is felt that the safe­ which is sold. He has to carry certain guarding of his life as well as the lives of regulation equipment and each boat his family and friends does not Interfere actually has stamped on it its loading with his liberty or enjoyment. The loss of capacity in pounds. Each boat Is given life In boating accidents is serious and tends a certain loading rating which under law to become worse progressively. The Com­ cannot be exceeded. There is no actual mission feels that to make boating safer will way of policing that, I don't think. If, tend to assist the holiday-maker in his pur­ say a 16 ft. runabout is certified to carry suit of happiness in a climate and on a coast­ 1,200 lb. dead weight, then it would be line such as ours. sold as such. But there is nothing to prevent tile mother-in-law coming along There is no present need to impose further and hopping on board and making it restrictions upon members of yacht clubs or 1,500 lb. when they are ready to go to other aquatic sporting bodies who are well sea-or 1,400 Ib! I don't think we could able to educate and discipline their own police that one; but I do think that if followers. any regulation is considered concerning It is now proposed to deal with further these small boats, it should be based on, safety precautions considered necessary In firstly, structural design excellence, which respect of both commercial and private ves­ could be done at the initial stage by the sels. overall authority. Provision of buoyancy apparatus suf­ Lifesaving Equipment and Precautions. ficient to fioat the motor-the people The following submissions were written by would already have got their life-jackets one of my Advisers, Deputy Commissioner of all, we presume-and a certain maximum Pollee, Mr. R. T. Napier, after consultation loading capacity, the same as is done with myself and the other Advisers. His with the licensing of boats that apply submissions are amply supported by evidence for hire. They are licensed for a certain given before the Royal Commission, coupled number of people. We have a set-up with his own experiences as a senior police now by which certain boats have to be officer and member of the Search and Res­ llcensed. If any legislation is thought cue Organisation. I concur with his sub­ of, it should be based on that capacity; missions and the recommendations contained and with the larger craft, some of which therein, and add my own recommendation do not belong to yacht clubs, either that they be adopted in toto. I have found we are going to ignore the fact altogether, it necessary to add certain comments of my or they have to come in on this provision own, together with recommendations con­ of plans for building. If it is good enough cerning matters not dealt with or dealt with for fishing boats, then it is probably only in part by Mr. Napier: good enough for pleasure boats; because The existing legislation under the West you could probably lose just as many Australian Marine Act is fairly compre­ people going to sea in rubbish. I think. hensive but could be improved by boating, generally, Is just starting to gain amendment to force all skippers of ves­ momentum in Western Australia. sels referred to in Regulation 75 (3) of It dates back to the lifting of import the Regulations to the Marine Act (Sur­ restrictions?-Yes. vey and Equipment) to carry infiatable or rigid type life rafts, of an efficiency Mr. Napier: I took out some figures, or conforming to Australlan Standard Spe­ my department did for me, in the last cifications or a similar standard, as it is two weeks, and, as I said earlier in this considered there is far too much equip­ hearing, to date there has been, since ment of this sort being sold sub­ 1960, 20 llves of professional fishermen standard, thus creating a hazard to life, lost, and in a very little longer period­ rather than a safety precaution. The from the middle of 1959-there have existing legislation requires approved been 21 deaths In private craft. apparatus but I suggest it should go By the Chairman: There have been further and be in accord with a Standard. some frightening near-misses, too?-I Smaller type vessels could also carry realise that. I have seen several of them. the above, where possible; there are Even though I do not like to make regu­ some types of infiatable rafts in fairly lations to control a man's sport, I think compact containers, suitable for the they are definitely necessary. Policing purpose. Alternatively, in lieu thereof, is, in my opinion, virtually impossible on boats under 25 feet should be fitted with 33

an approved buoyancy material which N. & C. Distress Flags, particularly In prevents sinking, such as polyurethane, daytime. These smoke signals proved around the structure to enable It to be a valuable piece of equipment In war used In emergency as a raft or assistance time and tests carried out during this to safety, together with life belts or Commission showed they would be of jackets, also approved according to a decided advantage to attract sea or air­ standard specification. craft to the rescue. For this purpose I The Harbour and Light Department recommend Clause (t) of Regulation 83 should refuse to permit the use of life be included under Regulation 70 as sub­ saving equipment unless It bears the regulation 2(a). Standard Specification number, and by The Harbour and Light Department publicity try and Install In retailers a could inspect all this gear at the annual duty to sell none but approved equip­ inspection, or on snap inspections, and ment. regulations should permit any vessel During the hearing of this Commission not properly equipped to be refused a It was frequently stated in evidence that licence; or ordered to shore if so licensed It was a simple matter to obtain a Fish­ and found at sea without essential erman's licence from the Fisheries De­ safety gear and, If necessary, action partment without any request by that taken under Section 195 of the W.A. department for the production of a cer­ Marine Act for suspension of the licence. tificate of seaworthiness of the boat. This may need amendment by deletion Under Traffic Laws a motor vehicle Is of the proviso to the section; see also not allowed on the road in an unread­ Regulation 30(2). worthy condition, and a driver is not The provision regarding the carriage of allowed on the road without some test. a suitable and correctly adjusted com­ I therefore strongly recommend that the pass should be rigidly enforced except Fisheries Act should be SUitably amended Where, in the opinion of the department, to make It mandatory for a Survey Cer­ it Is not reasonable. In this connection tificate of seaworthiness from the Har­ it is suggested permanent, qualified com­ bour and Light Department to be pro­ pass adjustors could be attached to the duced for the boat to be used as a fish­ Harbour and Light Department to test Ing vessel prior to the fishing licence compasses at annual surveys, thus saving being granted. A driver can walk away some expense to fishermen who now have from his vehicle Involved In a road acci­ to arrange for qualified compass ad­ dent; a person at sea cannot do the justors to travel to where their boats are same In the event of bother or the sink­ anchored. ing of a boat. With the advent of the pleasure boat and out-board engine, now used both in In this connection the Fisheries De­ placid sheltered waters and at sea, it is partment appears to adopt a very in­ strongly recommended that considera­ different attitude towards the lives of tion be given to some form of control fishermen. The department does not over the owners by restriction to survey appear to worry much whether a vessel for seaworthiness and for carriage of Is seaworthy or not, and in my opinion essential safety equipment, and also for has a very poor attitude towards life at advising the number of persons who may sea. The evidence of the Director of be carried, similar to existing provisions the Fisheries Department at folios 1898, relating to hire boats. An appropriate 1899 and 1900 bears this out. I am licence fee could be charged in lieu of firmly of the opinion that there should a registration fee. be greater liaison between the Fisheries Department and the Harbour and Light Many tragedies and near tragedies Department In regard to the use of un­ occur through overloading these pri­ seaworthy vessels. If boat owners, such vately owned boats. It should be com­ as fishermen, know they must produce pulsory for each boat to have displayed, a certificate from the Harbour and Light In a prominent position, the number of Department before a fishing licence will persons permitted to be carried, and the be granted, they will see that their boats Harbour and Light personnel should be are in good order. authorised to supervise, advise, caution, order ashore or prosecute persons carry­ In addition to hand flares, it should ing more than the number prescribed. be compulsory to carry rocket fiares, or To assist In policing such regulations, a Verey pistol and cartridges, for use In fast motor boats trailer borne for use emergency. The hand fiare Is not too anywhere, particularly In the more satisfactory. An excellent rocket fiare popular holiday resorts, should be pro­ was demonstrated during the sitting of vided for the Harbour and Light Depart­ the Commission. Dye markers should ment, to enable snap Visits, patrols and be compulsory as well as a Heliograph inspections. This particular matter is mirror. further reported under Clause (d). All boats proceeding to sea should have Wbilst many witnesses stated that the to carry at least two emergency fioating Harbour and Light Department gave smoke signal canisters to be used to good service many others said they con­ attract attention as flares, In addition to sidered insufficient time was allowed (3)-97630 34

for a rull, detailed inspection, both in­ To enlarge upon Mr. Napier's submission terior and exterior, of the vessels as to its that boats under 25 feet should be fitted with seaworthiness. I consider it essential buoyancy material, it is well to mention that that every boat used in the open sea regulattons 28 (4) and 43 of the Survey and should receive a thorough inspection of Equipment regulations already provide for craft and equipment, preferably on the airtight buoyancy tanks for some classes of slips. This would appear to necessitate vessels. It would now be desirable to add more staff to cope with this work and a new sub-regulation (5) to regulation 75 additional slips to enable thorough in­ providing that, in respect of boats under 25 spections to be carried out. feet In length, the fitting of an approved type I recommend a regulation be promul­ of foam buoyancy material in an approved gated numbered 66A causing a photo­ manner sufficient to float at least 25 per­ graph of all vessels (postcard size taken centum more than the weight of the boat, from abeam) be submitted to the de­ crew, machinery, engine, and other equip­ partment at survey time initially, and a ment, would be sufficient compliance with further photograph if any structural the regulation, The evidence disclosed, be­ alterations take place. yond doubt, that if all of the lost vessels had carried life rafts or if they had floated when I recommend that Regulation 99A (2) swamped, the lives of most of the persons be amended by addition of the words "or on board would have been saved. The Com­ unreasonable' after the word "imprac­ mission recommends accordingly. ticable". It is possible that it be practic­ able to put a wireless in some type of A raft should be so placed on a vessel that boats but unreasonable to enforce it it will float free in the event of the vessel for some good reason. For example, a sinking, but it should be attached to the boat which never works out of sight of vessel by means of a light line so that it land. will not race away in a strong wind or tur­ bulent sea out of the reach of survivors. The I would also recommend legislation to placing of a raft and the method of attach­ debar professional fishing boats proceed­ ing it are matters best left to the surveyors. ing to sea, if of a lesser length than 14 ft., I recommend accordingly. and amateur fishing boats not be of a lesser length than 10 ft. The evidence before the Commission has It is recommended that all safety confirmed the opinion of members that It gear on boats should bear the distin­ is lmposfble for one man to handle a vessel guishing number of the boat to obviate of 25 feet in length or over. It is recom­ interchange between boats-for the pur­ mended that any vessel in that category pose of avoiding supply of such gear. be manned by more than one person at all times. The Standards Association of Australia has issued a booklet relating to standard specifi­ In order to give practical effect to cations for reinforced plastic boats entitled the opinions already expressed regarding "Australian Standard F3-1962" (Exhibit 47­ added safety precautions concerning private Perth). The minimum requirements for pleasure boats the Commission recommends these vessels include a rule (No. 1.16) that that the Navigable Waters Regulations be the boat builder shall affix to each boat a amended, firstly, by amending the definition plaque bearing the following information: of "navigable waters" to include all waters off the coastline of the State and secondly, (i) Serial number, by including, in addition to the regulations (ii) Builder's name and/or trade mark, already recommended in the foregoing pages, (iii) Recommended maximum passenger the followlng:- capacity, (i) That all "motor boats" as defined be (Iv) Recommended brake horse-power subject to survey as prescribed for capacity, commercial vessels of similar size, (v) Boat weight capacity, from time to time by and at the (vi) The number of this Australian Stan­ discretion and convenience of the dard, i.e., AS-T3. Department, after notice, and that pending such survey the vessel be This Commission considers that such a permitted to be used for the purpose plaque should be affixed to all vessels con­ for which it was intended, all other structed of any material whatsoever and used statutory requirements havlng been solely for pleasure, by the builder or dealer complied with. supplying the vessel, upon completion of con­ struction, and recommends accordingly. It (ii) That on survey the Department pre­ would naturally follow that the information cribed for the vessel- be determined by the methods laid down in (a) the load limits in respect of the booklet. persons, gear and equipment, The plaque should have the effect of fore­ (b) the power limits on engines, warning the intending purchaser if the vessel (c) the minimum safety require­ is too small for his requirements and also ments not already prescribed of providing at least a warning against over­ by regulatlons 52, 52A, 52B loading or overpowering by users. and 52C. 35

Compasses. occurred to anyone adequately to legislate To enlarge upon the submissions of Mr. in respect of them, or it may be that Napier relating to compasses it is recom­ surveyors are constantly on the watch for mended that all the regulations relating to any deficiencies. However, some evidence compasses be overhauled and that the de­ has been given relating to the inadequacy partmental technical officers be given power of pumping equipment on fishing vessels. It in respect of the following matters:- is recommended that new regulations should (i) To exempt any vessel from the pro­ be framed relating to all sea-going vessels visions relating to compasses where providing for both mechanical and hand the carrying of a compass would be pumps of approved number and design, sub­ impracticable and unreasonable. i ect to the discretion of the surveyor where it is not practicable to fit a mechanical pump. (li) To determine the size of the compass and the position where it is to be Navigation Equipment. placed, upon initial or periodical survey. While the existing regulations provide for (iii) To prescribe that, in addition to a the carrying of compasses and barometers, standard compass, a Pelorus compass as well as lead lines on the larger vessels, be carried where it is necessary for there is no provision for the carrying of the safe navigation of the vessel charts, parallel ruiers or dividers. having regard to the nature of its If a skipper is obliged to iay a compass operations. course in the progress of his operations it (Iv) To prescribe where crayfish pots or follows that he should be provided with a other loading be carried on the vessel chart covering the area of his operations in relation to the standard compass. and the other equipment necessary to find (v) To decide when a ship shall be swung the course. The evidence discloses that the and a deviation card issued from charts of this coast are notoriously incom­ time to time, being not less than plete and even inaccurate in some cases. It once in every three years. is very important that any vessel operating' in unfamiliar or badly-charted areas should The evidence of Capt. J. watson, given be fitted with an echo sounder or carry a upon his second appearance as a witness hand lead-line of the kind prescribed by before the Commission, is annexed as Appen­ regulation 19 (c). dix "E" for the guidance of all interested persons in determining the abovementioned It is recommended therefore that all com­ matters if required. (Trans. pp. 1946-57.) mercial or fishing vessels should be obliged to carry a chart of the area of operations Dangerous Equipment. and all of the equipment necessary to lay a A number of witnesses stressed the danger course and to find distances and depths of accompanying the use of nylon type rope water, at the discretion of the Department because of its tendency to fioat and become unless it is impracticable or unreasonable to hopelessly entangled in propellers. The do so. position should be watched by the Depart­ ment. Manning of Watches. The danger accompanying the fittIng of It is probable that vessels and lives have outriggers to the stern of vessels has also been lost because the sole person on watch been stressed by witnesses. ThIs attachment has gone to sleep or has become otherwise plays a part in overloading and also tends incapacitated. It is possible that a sole man to lessen the stability and steering qualities on watch could fall or be swept overboard. of a vessel. It is recommended that no out­ The Commission recommends that all vessels rigger be allowed to remain on a vessel, or under weigh, other than one-man vessels, to be fitted, without the approval of the De­ should carry at least two men on watch at partment on survey and, if allowed, that it all times. shall be of approved size, construction and design. Safety and Distress Equipment. It is certain that self draining cockpits, In addition to the recommendations em­ associated with overloading of the vessels, bodied in Mr. Napier's submissions it is re­ have contributed to a number of casualties commended that the following amendments in the fishing industry. Furthermore the be made in order to bring existing regula­ constructIon of a vessel with a self-draining tions up to date to clear up legal doubts and cockpit tends to interfere with the ventila­ to effect improvements:- It tion of inboard engines. is recommended (I) That all references to manilla anchor therefore that self-draining cockpits be rope be extended to include as an banned in all fishing vessels so constructed alternative approved nylon type as not to have completely watertight decks or on those powered with inboard petrol rope of at least half the specified engines not independently ventilated to the circumference of the manilla rope. atmosphere. (il) That in all cases 60 fathoms be the minimum length of anchor rope Pumps. required to be carried. Pumps are such elementary and necessary (ili) That where the carrying of life­ pieces of machinery to have on board sea­ buoys is prescribed at least one be going vessels that it does not seem to have fitted with a self igniting light. 36

(iv) That regulation 70 (1) of the proper survey of all vessels and their Survey and Equipment regulations equipment, and to enable apprehension be amended to provide that vessels of those who, there is no doubt, purposely under 15 tons carry 3 rocket signals avoid the surveyors and payment of fees, and vessels of 15 tons but not over and use unseaworthy boats without pro­ 50 tons carry 6 rocket signals. per safety equipment, thereby endanger­ (v) That all commercial and seagoing ing not only their own lives but also fishing vessels be obliged to carry those who proceed to their rescue in sufficient food and water, to be time of distress. maintained in good condition, to It is suggested that a competent com­ support all persons on board for pass adjustor, or adjustors, should be three days. employed by the department to check (vi) That the provisions of regulation 28 and adjust compasses at survey times. (22) of the Survey and Equipment The value of a correct compass was regulations which relate to the amply illustrated on several occasions carrying of a suitable and adequate during this Commission. Whilst provi­ supply of tools, be extended to in­ sion of a pelorus would be useful, this clude spare parts and to apply to all is a very costly Item and may have effect vessels. upon compulsory supply. (vii) That the provisions of regulation 24 of the Survey and Equipment regula­ It is recommended, if not already in tions relating to local limits and operation, that the owners of all boats hours be extended to fishing boats subject to survey should be posted a under 20 feet in length. notice of survey at least three or four weeks ahead of the due date, advising (viii) That all seagoing fishing vessels of the place, date and time of the annual not less than 20 feet in length be survey; and a heavy penalty apply for obliged to carry a log book in a failing to comply. This will necessitate form to be prescribed by the Depart­ additional staff on the clerical side to ment and to keep the same entered enable proper recording and the Issue of up to date. Provided that the De­ such notices and licences. partment may in writing exempt any vessel from carrying a log book It is considered the Harbour and Light where it would be impracticable or Department is badly understaffed and unreasonable. although competently doing work within the limits of the existing staff, is not The foregoing recommendations and all competent to carry out all the work others made in this part of the Report are required, or to apprehend offenders supported by the weight of evidence based breaching the regulations. For this pur­ on practical experience of members or ex­ pose It is strongly recommended that, in members of the armed forces, master addition to more staff, the department manners, fishermen-professional and amat­ be granted at least two high speed, ocean eurs, business men, members of aquatic going patrol craft, suitably manned with sporting bodies and participants of ocean efficient, trained personnel, to enable yacht races. The evidence is supported by movement from place to place as re­ the results of practical tests carried out in quired in the Interests of the depart­ the presence of my Advisers and myself with ment, checking equipment by way of the safety equipment discussed, displayed or snap inspections at sea, apprehending­ thrown from surface craft, or from the Com­ at sea-vessels not properly surveyed, mander Rescue aircraft of the Department ordering' ill equipped or unseaworthy of Civil Aviation. vessels to shore; and have the requisite clerical staff to cope with the Increased commitments, PART 2. The patrol craft could be used as Reference (b) "the ability of the Harbour and search and rescue craft In Instances of Light Department effectiveiy to admin­ distress or disaster at sea, and also ister such legisiation and improvements placed at the disposal of the Pollce De­ thereto, and to take Court action there­ partment, as required. For this purpose under, having regard to present staff It would be of decided advantage to have and legal requirements and what fur­ Harbour and Light Department patrol ther staff and facilities (if any) should boats fitted with wireless and able to be made available to the Department communicate with Police V.K.I. radio for such purposes; ". station in the event of emergency requir­ Again I concur with the written submis­ ing their use, either for the Individual sions made by my Adviser Mr. Napier and I departments, or jointly. recommend that they be adopted in toto. As This portion of the references could be before I have added certain comments and read in conjunction with Item (d). recommendations of my own. It is strongly recommended that the The Harbour and Light Department is Harbour and Light Department be in­ encountering the same difflculty in marshal­ creased by the addition of more super­ ling sufficient facts to support a prosecution visory and examining staff to enable a as the Police Department would encounter 37

If It were not for the existence of section 69 supplied with fish. The processor Is very of the Traffic Act. Mr. K. G. Forsyth the reluctant to do this and so the prosecu­ Manager of the Department made the fol­ tion action cannot be proceeded with. lowing statement at one of the sittings of The processor Is naturally on the side the Commission after a witness complained of the fishermen. In fact two years ago about fishermen operating without certifi­ it was reported to the department that cates: a processor was offering £50 for a certi­ Mr. Money raised the question of men ficated man to take a vessel to a coastal operating without certificates. The law anchorage and then hand over to a man says-and the Crown Law Department without a certificate. (Trans. pp. 730­ supports It Inasmuch as it will not take 731.) a case-that a man must be seen navi­ The procedural section of the Western gating a vessel. It Is not a matter of Australian Marine Act relates only to proof co-operating with the Fisheries Depart­ by averment of ownership and licensing. It ment because that department will give should be enlarged to bring it into line with us a copy of their returns proving that section 69 of the Traffic Act by including: they brought crayfish In and put them through the processing factory, but that (i) the fact that a person being required will not be accepted by law as proof to hold any particular certificate that that man operated his boat. The under the Act did not hold such legal people will tell you that he could certificate; say that he did not operate his boat, (il) that fish found in the possession of but that someone came and put them any person or in any place under on his boat and he merely came In and the control of a person have been put them on the shore. That Is what caught for sale; Is put to us every time we try to take a case against a man who we know is (iii) that any person has navigated a operating the boat without a licence. vessel or that any vessel has been Many fellows are dodging that because navigated within the jurisdiction. they know that Inspectors are about I recommend accordingly. and they disappear from one place and turn up at another place. (Trans. pp, With the price of one bag of crayfish to 160-161.) a fisherman being upwards of £20, the maxi­ mum penalty of that amount for a breach Mr. P. Armstrong, also an officer of the of the regulations is far too little. It is the Department made the following statement: opinion of the Commission that the maxi­ The wording of the Act Is that "no mum penalty for navigating a vessel not vessel shall be navigated" which means having a boat licence, or a certificate of sea­ that I have to be on the beaches any worthiness, or not properly manned, should time between 9 a.m. and 5 p.m, to be raised to £100 and that a minimum actually see them under weigh. With penalty carrying suspension and/or disquali­ a two-man patrol, two beaches In close fication for a first and each subsequent proximity could be worked together. offence should be fixed, after the manner of Sections of the Marine Act need over­ section 32 (3) of the Traffic Act, with a pro­ hauling. I quote the case of the "Marlon" vision for removal of the suspension or dis­ which was adrift with starter motor qualification after the manner of section 33A. trouble during August, 1963. The man The Commission also considers that In all In charge did not hold a coxwatn's and other cases the minimum penalty for a Engineer's certificate and was in fact breach of the Act or regulations should be awaiting prosecution for a similar man­ t of the maximum. I recommend accordingly. ning offence from December, 1962. The vessel was not licensed with the Fisheries During the course of the Commission it Department. I personally took the file became apparent that probably nobody on to the Crown Law Department and was the staff of the Department was thoroughly advised that all evidence was purely familiar with the provisions of the Western hearsay and could not be accepted. My Australian Marine Act and Regulations only recourse was to gain an admission thereunder. I recommend that one capable from the skipper who was at Lancelln. officer be appointed as a legal clerk, with a This I could not do, and so the depart­ suitable classification, to familiarise himself ment could not take action, although with all of the statutes and regulations the all' and sea search must have cost administered by the Department and to hundreds of pounds. prepare a composite index of the same. In the meantime the matter of consolidation One of the obstacles In the Act Is the should be taken up with the Crown Law wording that a fishing vessel must be Department. The legal clerk should be In licensed or required to be licensed with charge of the preparation of all briefs for the Fisheries Department. Some owners prosecution. take months to license their craft, so then It must be proved that they are The Department should seek a ruling from required to be licensed. That Is all right the Crown Law Department, if it has not If I can see the crays come ashore, but already done so, concerning the effect of If I do not then I must get a statement regulation 67 (I) of the Survey and Equip­ form the processor that he has been ment Regulations. It appears to be the 38 opmion of officers of the Department that TIle following evidence was gIven by Mr. the effect of the first part of the subregula­ McKimmie in relation to the respective re­ tion down to "equipment to be carried" is sponsibilities of Commonwealth and State in to brIng fishing vessels within the scope of the matter of the lighting of the coast:- all other regulations relating to equipment, In reference to the dividing line be­ whether or not such vessels come within the tween Commonwealth and State in the description or classes to which the other matter of erection and maIntenance of regulations relate. I do not agree with this lights along the coast as aids to navIga­ interpretation. tIon there is no clear definition of policy in this regard. Further references to patrol craft will be In the past we have always understood made in dealing with reference (d) of the that port lights, t.e., lights withIn the terms of reference. There is also a pressing boundaries of a port were the responsI­ need for suItable vehIcles to be provided for bility of the State through its various the Manager and other officers of the De­ Port AuthorIties and ocean route lights partment, to enable them satIsfactorily and were the responsibility of the Common­ without undue personal discomfort to carry wealth through the Department of out their duties. These vehicles should be Shipping and Transport. able to negotiate the rough stony and sandy tracks, sometimes flooded, which lead to However, recently the Commonwealth many of the anchorages. ThIs requirement has accepted responsibility for lights was brought home vividly to members of the within port boundaries where these Commission on our recent tour of the lights are necessary for commercial anchorages. Four wheel drive vehicles should shipping and they have indicated that be available to inspectors and surveyors as they would consider on its merits any well as cars with standard traction. The case for lights which would be helpful to Manager of the Department finds it neces­ flshermen but whIch also could be of sary to vIsIt all harbours and anchorages assistance to commercial shipping. between Esperance and Wyndham to review There is one thing which the Com­ the situation at each place from time to monweath has indicated with certainty time. In my opinion he could not carry out and that is that they will not accept re­ his duties efficIently without making such sponsibility for leading lights into fish­ visIts. It would be impossible to do the job ing boat anchorages. (Trans. p. 1829.) by aeroplane on account of the difficulty of makIng connections and arranging transport In carrying out its responsibilities in re­ between aerodromes and outposts. gard to boat harbours and anchorages the Department must be armed with a reliable marine survey of such localities. This infor­ On the return of the CommissIon from mation is not now available to the Depart­ Point Samson to Onslow in July last the ment and in order to obtain It in any manager's car broke down and had to be particular case the Department is obliged to towed 90 miles from Mardie Station to Ons­ rely upon the already heavily taxed resources low where it was left at a garage, an almost of the Harbours and Rivers Branch of the complete wreck. The car had taken a bad Public Works Department. It appears that beatIng over about 60,000 miles during its this Branch will have its hands full for life, much of its mileage being over roads some considerable time with major harbour of the kind just described. No senior public development. The improvement of boat officer should be obliged to risk life and limb harbours and anchorages having become a In such a vehicle. Anything smaller than a matter of immedtate concern the Harbour large American type sedan car or station and Light Department will require to brIng sedan would be too small for the job. I its inrormatlon up to date. It appears from strongly recommend that the manager and the evidence referred to in earlier parts of technical staff be supplied with suitable this Report and from inspections carried out vehicles in the terms of these comments. that the Department must establish its own hydrographic survey section in order to cope Within the Department there is ample with the work. The problem was dealt with work to keep a naval architect fully engaged. by tile Manager, Mr. Forsyth, at the first The matter of the examination of plans and sittings of the Commission. He made the specifications, the fixing of load capacity following comments:- and like matters, and the making of Im­ I might add the Department has been portant decisions regarding the construc­ instructed by the Minister to make an tion, stability and seaworthiness of vessels investigation in regard to the equipping are SUbjects within the capacity of an officer of recognised anchorages-not every with these qualifications. The services of anchorage-with leading lights and such an officer are needed in order to advise leading markers and the Department has admInistrative officers as well as technical, two officers now inspecting these places survey and inspectlonal staff upon matters to find out what is required. However, appertaining to vessels concerning which you must recognise that before any navt­ they are in doubt. Such an appointment is gation authority would put navigation recommended, the officer to be given the markers in any of these places they statutory powers to make binding decisions would have to have the places surveyed on the matters discussed including plan ap­ first. So before putting lights in any proval and loading determinations. anchorage, some other authority must 39

make a hydrographic survey of the ap­ It is also apparent that the recording of proach and entrance to the anchorage. sea-time for crew members has been most If you put down leading markers and haphazard. There is in fact no accurate lights because everybody has been using record kept of the time actually served by a an anchorage a boat might hit a rock crew member on board a vessel. on that line and the authority is liable for all the cost. (Trans. p. 26.) It is recommended therefore that a hard covered record of service book be kept by It Is recommended therefore that a hydro­ every member of a fishing vessel, including graphic survey section of the Department be engineers, in a form to be prescribed by the established forthwith, suitably equipped with Harbour and Light Department, and that a vessel and technical staff. every period of service be entered In the book by the master of the vessel and signed In addition to the appointment of a com­ by him, the heaviest penalty prescribed by pass adjustor, legal clerk, a naval architect the regulations to apply to false entries 01' and technical hydrographic survey staff, the failure to keep the record. Department requires immediate additions to the staff, consisting of:- The training of crew members in seaman­ ship is, in many cases, non-existent and their (I) engineers and ship surveyors-one to education equally deficient. It is recom­ be stationed permanently at Gerald­ mended that any deck crew member on a ton; fishing vessel undertake the Education De­ (Ii) Inspectors and water police; partment's course in coastal navigation 01' an equivalent course, and that he produce, (iii) patrol boat skippers and crew; on application to the Harbour and Light De­ (iv) clerical staff at Head Office and out­ partment for examination for coxswain, the ports as required. Education Department's certificate 01' its equivalent that he has secured that Depart­ The Commission recommends accordingly. ment's "B" pass in coastal navigation and Details of staff, extra accommodation, boats nautical knowledge. This certificate shouid and vehicles required should be the subject be produced With his record of service book. of an early report to the appropriate auth­ The certificate referred to was mentioned in ority by the Manager, Harbour and Light evidence by Mr. S. C. Turner, Principal Fre­ Department, and it Is so recommended. mantie Technical S,chool, in the following terms: One point I would make here is that PART 3. the course we conduct is to prepare Reference (c): "the requirements and stan­ students for our own Technical Educa­ dards of qualifications for masters, tion Division Examination, for which we mates, engineers, marine motor engine issue a certificate. This particular cer­ drivers and coxswains' certificates, re­ tificate has no commercial vaiue at all, spectively, and any Improvements con­ but it does state that students of our sidered to be desirable". course have reached a certain standard. It Is not, of course, the official certificate The Commission finds that, with one excep­ Which is issued by the Harbour and Light tion, In the Case of coxswains, the qualifica­ Department, because there are certain tions prescribed by the regulations under requirements in relation to eyesight, the Western Australian Marine Act relating years of sea service as a helmsman and to masters, mates, engineers, marine motor so on, which of course, for the purposes engine drivers and coxswains' certificates are of this certificate we are not Interested of sufficiently high standard. in. This certificate merely states that this is to certify that at the annual It has become apparent from the evidence examinations held in November, -, that coxswains generally do not have 01' have John Citizen secured a pass in the fol­ not been required to have a working know­ lowing one subject at the grade indi­ ledge of the compass. The majority of wit­ cated; Coastal Navigation and nautical nesses in the category of coxswain do not knowledge "B" pass. (Trans. p. 1758.) understand the compass 01' its uses. It is recommended that the following words be It is respectfully suggested that the Direc­ added to subregulation (e) of regulation 37 tor of Education be asked to provide a course of the Manning of Fishing Vessels regula­ for engineers of fishing' vessels similar in tions:- extent to the coastal navigation course and that eiementary radio telephony for fishing He must be able to take a bearing by vessels be included in both courses. compass, and to apply variation an deviation to find a true bearing; to use Although regulation 74 of the Survey and a chart 01' plan and know the meaning Equipment regulations requires every sea­ of all the marks signs and abbreviations going fishing vessei to be provided with an thereon; and to find the compass course approved first aid kit, there does not appeal' (01' courses) and distance (01' distances) to be any standardisation of the extent of between two points on the chart. the kit to be carried, nor is there any re­ quirements that anyone on board have a The degree of strictness to be exercised by knowledge of elementary first aid. These examiners has been dealt with. matters should receive immediate attention 40 from the Harbour and Light Department. PART 4. Another matter requiring attention Is that no one on board a fishing vessel Is obliged to Reference (d) "the adequacy of the present have any knowledge of Morse Code, even to organisation and facilities for the search the extent of sending an SOS message. and rescue of persons missing at sea from such ships and any improvements It Is further recommended that any of the considered to be desirable;": foregoing matters made the subject of recommendations be Included In appropriate The following submissions were written at regulations to be framed by the Department my request by my Adviser, Mr. R. T. Napier, If and as soon as the machinery for putting after consultation with myself and my other them Into effect becomes available. Advisers. The submissions are fully sup­ The witness, Geoffrey Bourne, Lieut.-Com­ ported by the evidence and I concur with mander, R.N., retired, drew the attention of them in detail. I further recommend that all the Commission to what he considered to be of the recommendations contained therein an anomaly existing between the qualifica­ be accepted in toto. tions required of skippers and coxswains of fishing vessels, on one hand, and coxswains Organisation: and masters of harbour and river craft on I am of the opinion that the Search the other. He considered that an invidious and Rescue Organisation has done a distinction had been made in the case of a fairly efficient job with the facilities at workboat skipper who was not allowed to hand; however, without regulations com­ take his boat outside port limits. He stated: pelling skippers or owners of vessels to It can be seen that in general the do certain things or sufficient enforce­ minimum ages for fishing vessel tickets ment officers to enforce existing regula­ is one or two years less than the equiva­ tions, the organisation cannot be one lent workboat certificates, although the hundred per cent. effective. numbers of years' experience required is The West Australian set-up is an off­ similar. Yet the fishing boat skipper may shoot of the Rescue Organisation formed take his boat anywhere up the coast be­ In the first instance by the Common­ cause he has passed a simple theoretical wealth Department of Shipping and examination. Transport for search of missing aircraft in Western Australia through the De­ * * * * This gives him complete licence to partment of Civil Aviation in Perth. work his boat wherever he chooses and Various bodies, are represented on the in any weather he chooses. This is par­ Standing Committee enumerated at folio ticularly relevant with Coxswains (under 199, paragraph (7) of the transcript, and 15 ton). they meet from time to time. The workboat skipper on the other All bodies referred to are at call In hand, even if he passes the theoretical emergency. exam may still not take his boat outside the Port limit because he has not had Aircraft: the "sea" experience. He could have 20 From a point of view of improvement, years' experience handling small craft it is of vital Importance that a suitable· in an area that includes Rottnest, Cock­ aircraft be available at all times to un­ burn Sound and waters out to the Bell dertake search over vast areas of ocean. Buoy, but he cannot take even the small­ Western Australia has an extensive est boat to "sea". Not until he qualifies coastline and fishing and sporting ac­ for an "Under 300 ton" certificate can tivities extend over the large majority he officially take even a 10 ton boat up of It. the coast. The oniy way he can get this is by going to sea in a coast trader, deep The most suitable types of planes are sea vessel or fishing boat for four years the Dakota and the Neptune. -to gain "experience". One wonders At present the R.A.A.F. Base at Pearce, here just what we mean by "experi­ W.A., upon whom the first call is made ence"? Does a year working in a fishing for aircraft In an emergency, has at its boat out of Jurien Bay or Cervantes disposal one Dakota aircraft and several necessarily give 011e the experience to Vampire aeroplanes. The latter, whilst work anywhere along the coast? Is the they have been used In emergency, are sea, when it's nasty, so very different at really not suitable as they fly too fast Ledge Point to that off the Stragglers? for search purposes. Does four years at sea in a big ship as a deck-hand really give one the experience Whilst generally available, the Dakota to take a 50-ton ship up the coast? What is not always on hand owing to various in fact teaches the seaman the difference other commitments, thus the second between a justifiable risk and a non­ avenue of request Is the Department of justifiable risk? (Trans. pp. 814-5.) Civil Aviation, Perth. This department has one Commander Aircraft available The Commission could not see sufficient for use when required, should the grounds for recommending that the existing R.A.A.F. not be able to assist. Again, regulations be disturbed and preferred to by reason of other commitments or leave the matter in the hands of the Har­ maintenance work, the Commander may bour and Light Department. not always be available and the rescue organisation is then left to explore pri­ Search and Rescue Organisation being vate or other air companies for aircraft put into action from that department suitable for the occasion, either to hire when small ships are In distress. or charter. Despite this, however, I would recom­ In this respect assistance is readily mend that instead of the Police Depart­ available from amateur air patrols such ment being so equipped, the Harbour as Nor West Whaling oo., and others and Light Department be granted funds who assist from time to time if planes to purchase fast, suitable, seagoing are in the vicinity of disasters. boa ts manned by trained personnel, to If it is believed a disaster has occurred be stationed at Geraldton and Fre­ within say, up to 20 miles at sea, there mantle; with at least two trailer borne, are several twin engine planes avail­ smaller, fast patrol boats to enable move­ able. If, however, it is required to ex­ ment whenever desired, particularly to tend the search and rescue to 80 miles check the ever increasing amateur or or more at sea, as has occurred, then the private boat owner. Dakota 01' Neptune aircraft is most de­ Small Patrol Motor Boats. sirable. With enormous growth of boat minded Helicopters would be of little use out owners, we now find thousands of small at sea by reason of the limited distance craft used by amateur fishermen and they can travel, but useful inshore 01' famllies for pleasure all along the West­ along the coast. However, I do not re­ ern Australian coast. commend provision of this type of air­ The smaller type, trailer towed power craft. boat, I suggest, would be of great value It is quite Obvious, despite all the pre­ In pollcing regulations promulgated for cautions taken by fishing crews, acci­ the safety in the use of boats In the dents will occur, therefore the Search and open sea, and indeed even inland waters Rescue Organisation must be equipped such as estuaries. to the best advantage in emergency. Far too many tragedies and neal' trag­ It is strongly recommended that rep­ edies occur with these smaller boats, as resentations be made for the stationing testified during the Commission, particu­ of a second Dakota plane in Western larly at the more popular holiday resorts. Australia to enable at least two planes In the event of the Harbour and Light to be available from the R.A.A.F. Base Department being granted the supply of at Pearce, one at all times. the boats referred to, they could at any It is believed the R.A.A.F. Base at time, subject to avatlabiltty, be placed at Pearce has been changed from opera­ the disposal of the Police Department, tional to training centre. I submit there by mutual arrangements between both must be some use for additional opera­ departments, in lieu of the provision of tional craft, even for the training of per­ a craft to that department, thus serving sonnel in their use, and training of ob­ the Government through both. servers; the latter is of vital importance in sea searches. Local Rescue Committees. In view of possible objection by the It is strongly recommended power be Commonwealth to increasing the strength given to form Local Rescue Committees cioperational aircraft in this State, the in all fishing resorts, to enable immediate matter could be taken up at Govern- initial inquiries to be made in the event . merit level. Surely, in the interests of of overdue 01' missing vessels by- saving human life, such a facllity could (a) reference to a record of all be granted for the dual purpose ex­ boats operating in their area, pressed; and to assist a fishing fieet more description, skipper, crew, etc., than twice the size of that In any other which should be maintained; State with a coastline of far greater (b) evaluating the situation at sea length. and planning drift by winds and Water Transport and Sea Patrol Boats. tides; With the growth of the fishing Industry (c) investigating the last known In Western Australia and the far dis­ position of the vessel con- . tances sailed, even today, for good fish­ cerned; ing grounds and the likely expansion in (d) endeavouring to make contact the future, it is quite obvious, In the with the vessel 01' vessels in the event of distress to any vessel, water Vicinity; and transport is required for ready assistance (e) if not successful, taking neces­ to search and, if personnel aboard are sary action to find the vessel, in danger of losing their llves, to rescue either locally with rescue boats them; on occasions it may also be prac- within the organisation 01' by . tic able to perhaps salvage the boat by requesting help from the Rescue tow. Intelllgence Centre at Perth. Possibly the logical department to be It is suggested these committees could assisted In this respect would be the be comprised of experienced local fisher­ Pollce Department by reason of the men of repute, with knowledge of all 42 boats operating, of skippers and crews, such an important State industry as of the coast and the waters being fished, fishing should be equipped with like faci­ and in addition, any other reputable lities, particularly as that calling is a citizen recommended. It should include hazardous one and dangerous waters have whenever possible (In the smaller areas) to be fished, with an ever present pos­ the local police officer. siblilty of disaster. Radio could be of It Is suggested an ideal Committee vital help, excepting only those instances would be about four persons, with depu­ when boats possibly overturn, leaving no ties appointed to act. time to operate radios. Shore bases could receive schedule positions at least When local resources have been insti­ twice a day, which would give searchers tuted ami found inadequate, or the res­ a starting point and a chance to help cue operations required are beyond their in the event of disaster, distress or over­ limits, the Chairman should be em­ due reports. powered, through the locai pollee, to send a request to the Rescue Intelligence Identification Numbers on Boats. and Co-ordination Centre, Pollee Head­ It is further recommended that all quarters, Perth, for further heip; parti­ boats should carry an identification cularly if aircraft are required, as the number, permanently marked on the Commissioner of Police is the only per­ top-side upper structure of the boat, in son on whose authority the Common­ the case of fishing vesseis, to be of a size wealth Services, and other organisations, from 2 ft. x 4 Ins., painted black on will act in emergency for searches. yellow background, to assist ready iden­ Where a police officer Is not stationed tification from the air when aircraft are in the town, then the Chairman of the requisitioned. Committee, or his Deputy, could be It is likewise recommended that all authorised to request assistance. Such such boats should carry the licensed committees are already operating at number in large numerals, amidship on Mandurah and Dongara and meeting the side or near the fiare of the vessel. with success. The existing numbers could be increased in size. Where the boat is of such small Wireless Telephony and Shore Bases. dimensions, or by reason of its structure, All vessels reasonably capable of in­ identification numbers cannot be marked stalling a two-way radio telephony set then legislation should authorise the should be made to do so. This however carriage of a canvas sheet, about 5 ft. at present raises a problem insofar as, square, with the identification numbers in my opinion, it has been proved beyond displayed thereon in black figures on a question that there are insufficient yellow background. It is considered more shore bases to handle all radio traffic appropriate for the marking to be on the likely to eventuate should the many boat wherever possible. boats capable of having radios be forced to carry them. Sailing Plan. I am of the opinion some of the Fisher­ It is also suggested, if possible, that fish­ men's Associations or Co-operatives ing skippers should conform to a sailing should take out limited licenses which plan and leave certain information be­ would enable, on allocated frequencies, hind when they go out fishing, with continued contact with boats operating such as the Local Emergency Committee, in the areas, both for distress or ordinary local police, shore base station or next business calls in relation to fishing. of kin, so that some knowledge is had of their likely whereabouts in the event Despite evidence to the contrary by of being overdue. fishermen and others, the Postmaster­ This plan could include a description General's Department advises that shore of the boat, crew, if radio equipped, time base limited stations will be licensed if of departure and estimated time of applied for, and no Overseas Telecom­ arrival, with probable location for day's munication Station is operating in the fishing or any changes of destination vicinity. Even in the latter instance, if which may take place for some reason. sufficient evidence were disclosed, a shore base may even be permitted where This is particularly necessary with O.T.C. operate. boats in which it Is impracticable to in­ stall a wireless and should include pri­ These base stations should be capable vately owned boats bent on pleasure trips. of transmitting and receiving messages A sailing plan would be of invaluable from any boats operating in the area, assistance when boats are overdue and particularly to receive position calls and would enable ready assessment as to distress messages during periods when immediate or other action by way of vessels are out on the ocean. search or rescue, particularly in relation It is pointed out that such bodies as to a starting point for the search. How­ the Forest Department, Police Depart­ ever, I do feel if more shore bases were ment, Bush Fires Board, taxi services, allocated and a frequency allotted for Cheyne Whaling Station, Metropolitan fishermen alone, much more use would Transport Trust and various firms all be made of radio and it would prove in­ operate wireless bases now; therefore valuable. 43

Summed up, my recommendations to It must be remembered that the improve faclllties and render the Search Search and Rescue Organisation at and Rescue Organisation more efficient, Rescue Intelligence Centre, Police Head­ are:- quarters, Perth, is set up for action only when lite at sea is in danger. It is not (1) Suitable vessels be made avail­ anticipated that any legislation effected able by the state Government should cause this organisation to become to the Harbour and Light De­ a salvage unit for boats which merely partment, for supervision, en­ break down and are in no danger, or forcement of safety regulations, where no lives are in jeopardy. search and rescue; one large Such operations should be undertaken one to be stationed each at Fre­ by the local Rescue Organisation Owners mantle and Geraldton, smaller or Fishermen's Associations, or by ones stationed where required mutual arrangement between them­ by the department. selves. (2) Another aircraft be made avail­ From the first of the sittings of the Royal able at R.A.A.F. Base, Pearce, Commission at Geraldton on 12th May, 1964, preferably Dakota type. until sittings held in Perth on 18th August, 1964, when Mr. W. A. E. Nielsen, Assistant (3) Formation of local Search and Director - General (Telecommunications) Rescue Committees at all fish­ Postmaster-General's Department, of Mel­ ing anchorages, or where boats bourne, gave evidence, considerable doubt operate, to make all preliminary and misunderstanding existed concerning inquiries and searches and with the attitude of the Postmaster-Genera!'s De­ power to request assistance be­ partment towards the establishment of pri­ yond their own resources. vately operated limited coast stations (radio telephony). It is certain that many business (4) Enforcement of radio telephony firms and fishermen's co-operatives did not equipment on all boats reason­ fully realise the possibility of obtaining a ably capable of carrying it, and license to operate a limited coast station. Now provision for twice daily calls that all doubts and misunderstandings have to base of position. been cleared up and It has been shown by (5) Provision of more coastal, shore Mr. Nielsen's evidence that the policy of his stations, to enable air traffic Department is tolerant and reasonable, the between boat and shore base time would be opportune to implement the only, for schedule calls of posi­ provisions of regulation 99A of the Survey tion and other reasons in con­ and Equipment Regulations, which relates to nection with their fishing opera­ the compulsory fitting of radio telephony sets tions. All messages to be relayed on seagoing fishing vessels, provided that the from base to shore recipients to regulation is amended as recommended by be subject to a charge rate by the this Commission. Fishing boat owners should Postmaster-Genera!'s Depart­ be allowed further time to comply to enable ment. SUitable sets to be purchased and Installed and sufficient coast stations equipped to (6) Marking of boat license number handle the extra traffic that wiII eventuate. in black numerals on yellow Considerable care should be exercised in the background on the upper top choice and installation of sets and aerials. structure, wheel-house top or Any boat owner contemplating the purchase deck of all sea going vessels, of of a radio telephony set should seek the best a size approximately 2 ft. x 4 ms., advice available from the Postmaster­ and provision of large side mark­ General's Department and the Harbour and ings of the same number on Light Department. Mr. Nielsen's evidence is boats to assist in ready Identifi­ recorded at pages 1871-1894 of the transcript cation from both sea level and notes. the air. Smaller boats, or those The part which can be played by the Har­ on which it is not practicable bour and Light Department and by local to mark as suggested, to carry committees in the collation of Information a 5 ft. square marker with num­ relating to Individual fishing vessels Includ­ bers in black on yellow back­ relating to individual fishing vessels includ­ ground; these markings or nags ing their identification and operations was to be inspected regularly and stressed by witnesses from the Department kept clear and legible. of Civil Aviation. Superintendent of Opera­ tions, Donald McDonald stated: (7) If practicable, provision of a sailing plan of destination and On a number of occasions in recent time likely to be absent. This years the Police Department of Western Item however, could probably be Australia has requested assistance from dispensed with If radio contact my department to conduct air searches was made more available, al­ for missing and/or distressed fishing though this of course would not boats. The effectiveness of an air search affect smaller type boats. can be directly related to the accuracy of the information provided regarding a happy to have you revise it to suit local missing vessel. On many occasions the conditions and use it in any manner information available regarding a miss­ you see fit. If in the course of time, a ing vessel, its probable position, etc., has similar form is made available in your been totally inadequate. The most not­ country, we wIlI be happy to know that able deficiencies in this respect are- we hac! some small part in making boat­ (a) the lack of information avail­ ing more enjoyable by making it more able regarding the area in which safe, half-way around the Globe." the vessel intended to operate; An early witness before the Royal Commis­ (b) the lapse of time before an air sion stated qutte mistakenly that the Royal search was requested resulting Australian Navy did not participate in search in a huge increase In the area and rescue. Mr. R. T. Napier later clarified of possibility; and the posItion when he stated: We can call upon any of these depart­ (c) the complete lack of identifica­ ments; the Departments of the Navy, tion markings displayed on all the Army and the Air. As recently as vessels resulting in identification the loss of the "Cathy Jo" we called on from the air being extremely the "Diamantina", which was up in those difficult. (Trans. p. 1023.) waters, to assist us, and she was thrown Inspector of Air Safety, Mr. K. Pritchard into the search; and that is not the first stated: occasion. (Trans. p. 1082.) Actually what I had in mind was that I feel that the need for one fully equipped these committees should establish a long range search and rescue aircraft to be certain amount of fixed information on call at all times cannot be stressed too that would be easily available so that strongly. Lapse of time is one of the most we would not have to rely on someone serious difficulties to be overcome In all' going to Snag Island, for instance, and search. First of all there is the period before saying: "What can you tell us about the alarm is given, the need to call out an this boat or that boat, or the conditions aircraft decided and the call made; then here?" and because a certain man who there is the time taken to brief the crews, knows this information Is out at sea to get food, to get the aircraft out and to you canot get it. If this Information do the navigational planning-usually about were held In record form at different one hour; lastly there is the time to become centres up and down the coast so that airborne and get to the search area. The anyone centre could pick out the In­ total of these periods could well be many formation required and hand It to the hours, during which a man or men are in pollee or our own people it would be an grave peril. I feel confident that an appeal excellent Idea. (Trans. p. 1043.) at Ministerial level to the Royal AustralIan Air Force and to the Department of Civil The Harbour and Light Department wIlI Aviation would enable a working arrange­ keep an up-to-date record of all fishing ment to be arrived at whereby one aircraft vessels, Including a photograph, and It Is would be at call. There has been no lack hoped that local committees wIlI supply full of co-operation by Departmental officers or Information regarding the area of operations lack of speed of movement In the past of any lost vessel together with atmospheric having regard to the availability of aircraft. and ocean conditions prevailing at the time. With the streamlining of alarm, callout, A sample sailing plan, or "fioat plan" as It description and approximate location of Is called In the U.S.A. Is I1Iustrated In missing vessels, the search and rescue Appendix "C", figure 5. The letter, which organisation would then lack nothing In all­ accompanied two pads of float plans sent to round efficiency. the Commission on request, stated: Our "Float Plan" was developed pri­ PART 5. marily as a publIc service to pleasure boat operators but Its popularity here In Reference (e) "the attitude to, and views on the States, particularly among boating the foregoing matters of those affected safety organisations such as-the Coast by such legislation and Its enforcement;" Guard Auxiliary and the U.S. Power In the following quotations from the Squadrons, has made It a very effective transcript notes of evidence I have en­ advertisement for us. Currently we are deavoured to give a fall' cross section of the dispensing, free of charge, some twenty opinions of witnesses before the Royal Com­ to twenty-five thousand pads of these mission on this important item. forms annually. Captain C. Hartley, Harbour Master at The Marine Office of America Is an Geraldton, said:- organisation of ocean and inland marine in­ I can only say that the ones I have surance under-writers. (EXhibit 30-Perth). discussed this with have agreed there is It Is recommended that such a form be some necessity for a tightening of safety adapted for local use on a voluntary basis regulations and for the supplying of as In the U.S.A. The letter further stated: more efficient survival equipment, but While It Is a copyrighted form we there are many who say they cannot have no reason to dissuade you from afford It and It is expecting too much using it in Australia. We would be of the fishermen to have to payout all 45

this money for lifesaving equipment or possible to find out whether the regula­ to have to payout money to have their tions were being complied with. How compasses adjusted annually which costs would the fishermen take to that-i-that £5 ss, to £6 6s. The money factor seems is, provided they were not stood over; to be what most people are complaining occasionai inspections by a patrol boat? about. -If it was made law they wouldn't be able to complain. It is for their own Do you think lack of finance has safety. This is supposed to be a Safety something to do with their not already Commission. I do not think they would securing safety equipment?-I would not have any redress whatsoever. say that wouid be entireiy the case. I think there is a naturai reluctance for Do you think they would complain?­ anyone to part with his money on some­ Who doesn't? that is the thing. thing he feels he might never use or I have been asked to report on the ever be called upon to use, but there attitude and views on the foregoing are many boats in the fishing fieet which matters-including all safety provisions carry inftatable Iiferafts, and they have and so forth-of those affected by such bought them without any force on the legislation and its enforcement. Would part of the department. Other fishermen the fishermen, as a whole, take kindly are quite willing to go out to sea with to the tightening up, to the inspections, one Iifejacket and nothing else and say, and to ensuring that the tightening up "It will never happen to me." (Trans. was carried out?-I don't think so. pp. 9-10.) You say they would object?-There would be a minority." (Trans. pp. 168-9.) In evidence Mr. G. Travia, one of my Advisers answered questions thus:- Mr. L. E. Renfrey, fisherman, answered Regarding paragraph (e) of the terms Captain Woodcock's questions:- of reference, if there is to be a tightening What would you consider would be the up all round and a greater expense in­ attitude of fishermen if legislation were volved' what will the fishermen think brought in that they had to have some about that?-The only way would be to means of auxiliary propulsion; in other buy the equipment required, or get out words, either a sail or a small outboard, of the industry. You will find there will or some other means of propulsions?­ be very few who will refuse, and they will I don't think any fisherman who has be the ones who have not a boat. Any­ been in the game all his life, and in it one with a boat of any size is proud of to stay in it, would think of going to sea his craft, and will readily get the little in a boat without two diesel engines or extra that is needed. They will get a sail-two engines in it or a sail and everything that is required, bar the in­ an engine. fiatable raft. That is not quite answering my ques­ What about the provision of two-way tion. I am asking you what you think radio?-There are many boats which are the attitude of the majority of fishermen not suitable for installing two-way radio. would be?-The majority of fishermen I personally think the line should be who are in the game to stay would ap­ drawn at some particular point. (Trans. preciate it. (Trans. pp. 389-390.) p. 40.) Mr. O. Borg, acting General Manager for a Mr. Frank Bombara, skipper Grade 2 and fishermen's co-operative, when questioned, fisherman, sald:- stated:- They should be wholeheartedly in If there is a tightening up, how do you agreement with a tightening up of the think the fishermen will accept that, or the safety regulations, especially if it how do you think they wlil like it?-I Is beneficial to them, such as the re­ am sure they will probably start by say­ quirement to carry life rafts and rocket­ ing "There are too many rules and regu­ flares. That would be to their benefit lations and one probably needs an and they should take to it all right. If accountant to keep up with them." How­ I were made to provide something on my ever, they will finish up by helping be­ boat to help in saving my life I would cause the regulations are for the better­ be willing to do It. (Trans. p. 61.) ment of their lives or the improvement of their conditions. (Trans. p. 961.) Mr. F. B. Money, coxswain and fisherman, Mr. K. L. Watson of the Amateur Fisher­ answered my questions:- men's Association of W.A. dealt with the You and other witnesses have men­ question of stricter controls on private boat tioned the tightening up of regulations. users:- It is not much good tightening up the How do you think the general small­ regulations unless they are enforced. I boat-using public would react to the refer to coxswains' tickets and the con­ matters we have been discussing?-Many dtion of the vessels, overloading, safety would welcome it, but many would not, devices, and that sort of thing. How but in view of the fact that it is for the would the fishermen take to being in­ safety of all concerned, the feelings of spected at sea? That is the only way, those who would not welcome it should in some of the regulations, it would be be disregarded. 46

How do you think your club or associa­ The following comments form part of a tion would feel ?-Would they feel the statement read by Mr. E. J. Anneal', skipper same as you?-They are all in favour grade 1, representing the Rock Lobster­ of even stricter safety measures being Crayfish Industry Development Association taken. (Trans. p. 1116.) of Australla:- Mr. J. C. Watson, Vice Commodore Royal With the advent of the Royal Com­ Freshwater Bay Yacht Club answered a mission Into boat safety a unique oppor­ question on the submission of boat plans for tunity presents itself to press home what approval:- this association believes to be best for those who risk their lives dally in the If legislation was brought in-and re­ fishing Industry. Without the fish these member we are legislating not for yacht men bring in our industry Is nothing. clubs but for the great proportion of Members of this association believe that, all boats outside of yacht clubs-making as leaders In the industry, it is their it compulsory for any man who wanted responsiblllty to do all that Is possible to build a boat to present the plans to to protect the lives and property of some authority to have them passed, do those engaged In the industry. you think, as your personal opinion, there would be a great deal of opposition In the association's opinion an over­ from your yacht club to it?-There haul of safety precautions Is long over­ would be opposition, but I do not think due and the Importance of this is em­ there would be a lot. The only opposi­ phasised. The establishment of a coastal tion would be in regard to the advance­ rescue service, in particular, is strongly ment of boats generally. In other words, recommended. (Trans. p. 1265.) if I happened to get hold of an English design and it was a brand-new method Mr. L. G. Taylor, coxswain, fisherman of of construction, or a brand-new design, Geraldton, made the following summary:- and I was satisfied in my mind that it To sum up, I do not think you will was a good one and had been tried in avoid casualties no matter what hap­ England, I might take it along to some pens. It bolls down to the individual's board and they might say, "It is un­ attitude to the game. I do not think all usual; we have not seen this type of the restrictions-that Is what I call them construction before; we will not allow -on the fishermen will help that much, it." That is the type of opposition that because everything Is there if they want you would get. 'Personally I think the it. I do not like too many restrictions. idea Is a good one; and from the club's When you force anybody to do anything point of view I think this would be the it goes against the grain a bit. If the only fear, and they would not object to facilities are there and they do not avail this at all. (Trans. pp. 1165-66.) themselves of them they have only themselves to blame. (Trans. p. 1448.) Mr. G. W. Chrystal, Marine Operator of Fremantle, volunteered the following Infor­ Mr. F. R. Lemmon, General Manager of mation:- a Fishermen's Co-operative, answered a Boat owners are a proud race and we question from myself:- are invited aboard to see their boats, what gear they have, what power units, How do you think the fishermen would and so on, and we see a very good cross­ react to a tightening up of the existing section of boats, their standard, and regulations, plus a few additional regu­ what provision is made for safety. My lations, particularly where cost is in­ statement contlnues- volved?-AII fishermen do not like spending money, but saner minds pre­ To this end we submit the followlng:­ vail when it becomes apparent that the spending of certain moneys is of benefit (1) Pleasure boats using the ocean to them. We have found with our should be inspected and licensed for that shareholders over the years that they purpose. Prevalent items which miti­ will complain about spending money, but gate against safety which we have noted when it is pointed out to them that it are plastic fuel lines, no flame arresters is for their ultimate benefit, they will on the carburettors, makeshift wiring, making a short circuit a good possibility, agree to It. (Trans. p. 1491.) no stopcocks on water-intakes, no engine There is another school of thought which or carburettor spillage trays, insufficient clings tenaciously to the right of the private life jackets, inefficient anchor gear, con­ person to spend his leisure time and that of verted car gear boxes or direct drive members of his family as he ordains. Mr. systems-that is backyard mechanical L. C. Lawrance, Boat and Outboard Motor equipment-Inefficient steering gear­ dealer, Is a member of this school. He read we see a lot of that-and no navigation a statement prepared by Mr. B. Gaston, lights. It Is considered that all boats President of the Outboard Boating Associa­ should have an alternative means of tion of W.A. Mr. Lawrance, who described propulsion in the event of engine break­ himself as "a rebel against controls", sup­ down. ported Mr. Gaston's statement with some I am talking there of boats which go views of his own. He considered that small outside Fremantle Harbour. (Trans. p. pleasure boats were able to boast of "a 1193.) phenomenal safe record". The following 47 verbal passage between Mr. Lawrance and on extra safety equipment for the smart little myself illustrates the line of cleavage between outfits, which have or will cost them the us:- savings of years. By the Commissioner: He refers in the Some of the day to day problems which statement you have just read out to confront fishermen and their thoughts in safety records of pleasure craft over the matters of cost are illustrated by the follow­ past years having proved that further ing quotations from the evidence:- restrictive regulations would do little to I was behind this year, after last improve the existing good record. I am year's upset with the boat. I have got Inclined to think that is a false assump­ out of that and I am a few bob in front. tion. There have been quite a few However, I am up against it. I have to fatalities which occurred recently in­ take my wife and myself away for a volving the small pleasure craft, and the holiday and if I have to buy a radio and near-misses we have on record in evi­ inflatable raft I will have to go to the dence before the Commission are rather Co-op. to see if they will lend me some frightening. Whole families could have money. The people who fish do not been drowned but for a stroke of mere have much trouble borrowing from the luck?-I have been very closely asso­ Co-op. for equipment. The Co-op. paid ciated with this matter all my life in­ me £100 last year. That got me going volving small boats and that type of all right. As regards finance, they thing, when my business was involved. would not have It in their own pocket, The actual power boat accidents-I am but they could get it. (Trans. p. 251.) referring to small pleasure boats at this The biggest factor against this equip­ stage, and they would probably number ment is the cost. I understand a two­ one or two a year over the last few man raft runs Into about £120, and the years although I have not the exact fig­ bigger ones to about £260. I have seen ures and you may have-compared with similar pamphlets showing the various the vast number of boats which are reg­ types of raft availabie, but I did not have istered, and which Is well over 8,000 the finance to procure one. (Trans. p. illustrate a phenomenal safe record. 265.) (Trans. p. 1203.) If there was a boat adrift equipped Unfortunately, the information before the with a wireless, and we had a station Commission reveals that the record of small here, It would probably make It un­ pleasure boats is bad and would not permit necessary to get a 'plane up. If he gives of becoming worse. Recent mishaps accom­ his position, there is always a boat cap­ panied by loss of life are listed in Appendix able of going and getting him. I am HD". Some of the conclusions of Messrs. probably talking myself into spending a Gaston and Lawrance, which have not been couple of hundred pounds, but I think it based on erroneous assumptions, are sound would be money well spent. (Trans. p. and have found their way into some of the 291.) recommendations made In this Report, In­ The next point is the raft. All the cluding the better education of boat users members are In favour, but would like In particular. it to be of an approved design, and, on account of the high cost of these rafts, One cannot argue against the right of the would like some form of Government Individual to employ his leisure time as he supply at a reasonable cost, if possible. desires, but I firmly believe that the existing (Trans. pp. 394-5.) machinery of the Navigable Waters Regula­ As far as the fishermen are concerned tions could be slightly though effectively all these extra safety measures are added enlarged to restrain the foolish and the in­ cost and increase our cost of production. experienced from the needless sacrifice of There are many safety measures avail­ valuable lives in the pursuit of boating able for fishermen at the present time pleasures. I am unable to concede the right but they are all costly to buy. Also the of any individual gravely to endanger life installation of R.T. for boat-to-boat In a small boat to any greater degree than communication is most expensive but he would be permitted In a motor vehicle. possibly it is necessary for the safety of fishing craft. (Trans p. 538.) . The cost factor would be a positively Im­ portant consideration for professional and There were some (rafts) done up in amateur boat users alike. To my mind it canvas and I asked the price and was Is, from a practical point of view, equally as told they were £100 and more. It seems trite to say that cost should not matter a fantastic price to pay for something when life Is at stake, as to say that one can that will get thrown around in the do what he likes with his own life. There weather. They also said I would have are limitations. Very few fishermen are to send it back to them each year for heedless mercenaries who get into the In­ a survey. (Trans. p. 605.) dustry with the minimum outlay and get What would you have given about 30 out secure for life with a trail of broken years ago if there was a raft when you laws behind them. Not too many pleasure found yourself swimming in the middle boat owners who are family men can walk of the ocean? What would you have into a marine centre and spend £100 cash given just to have something to hang 48

on to?-I had a kerosene tin, which (7) The Department should be liberal saved me. That is why I am here today. in the exercise of its discretion where (Trans. p. 840.) discretionary measures are involved. But when we talk about automatic life (8) Safety does not lie in the number rafts and automatic radios and that sort of measures or articles prescribed of thing we are loading the industry to but In the quality of SUCh, having a great degree with another financial regard to the circumstances. burden and despite the popular belief (9) Safety begins on the sllpways and in that the Industry can well afford to be the anchorages. loaded with these financial burdens, (10) Vast improvement is required In somewhere along the line the Govern­ shore facilities. ment should investigate these things (11) Boat owners, skippers and crews will and, If possible, make them available accept added safety measures and through Government bulk purchase or stricter control if- something like that. (Trans. p. 1461.) (I) evasion is reduced to a mini­ If radio equipment were cheaper I mum; think one would have no hesitation in (il) the value of the equipment or installing a radio. The economics of fish­ service Is evident; ing today are not like they used to be; (iii) The cost is within reach; It is a pretty hard game. Fishermen are (Iv) shore facilities keep pace with getting hit right and left with heavy developments at sea. costs and It Is getting that way that the costs are greater than the return. If It is not proposed to comment further on the Installation of radios on boats is this summary. Throughout the Report my made compulsory, the Government views have been expressed and evidence should subsidise the cost of Installation quoted in support. The summary expresses to some extent. (Trans. p. 1660.) what I consider to be the attitude and views I have a suggestion for the provision of of the great majority of witnesses. There are Government funds at a low rate of in­ different points of view as ever and there terest for new gear to deepsea fishermen. will be opponents of any steps taken to make vessels safer for use at sea. A failure to The cost of gear on a £2,000 boat is appreciate the problems of boat owners or £431 16s. at present. That Is a con­ to provide adequate shore facilities could servative estimate for the compulsory drive them all Into one hostile camp. gear. There Is one transceiver which in­ cludes aerial and earth and chrystals and license which costs £220. That is a PART 6. set with a 35 watt aerial-a power aerial Reference (f): "generally the safety of such costing £24 (Included). It is remote ships and those aboard them while at controlled and Is most suitable. There is sea, and recommendations for or in re­ one tour-man infiatable life raft 5 ft. 11 gard to legislation, organisation, control, ins. In diameter which costs £130: a first facilities, education or other matters to aid kit costing £6; a fire extlnguj1'her provide or Improve measures for such costing £15; a barometer costing £12 16s.; safety;". a compass and gimbals costing £10; a It has been shown by evidence and men­ lifebuoy costing £6; four life jackets tioned in the foregoing parts of this Report costing £12; distress flags £4; distress that the coastllne of Western Australia flares £3; license and survey fees £7; a possesses vast economic wealth fully ex­ compass adjustment £6, making a total ploited, so far as our major resources are of £431 16s. (Trans p, 1747.) known, In respect of crayfish, salmon and During the progress of the Royal Commis­ snapper only. Prawn fisheries are develop­ sion the attitude and views of owners of ing; spanish mackerel are virtually un­ vessels and their associates became clear in touched. Mainland based tuna and sardine general outline and may be summarised as fisheries have not yet started. Even now follows:- Western Australia contributes approximately (1) The loss of life and property is too 70% of the exports of marine products of great. Australia to a total value of nearly £6,000,000 ann~m. (2) The exlsting regulations should be per It would require a detailed enforced uniformly and ridgidly by survey of the 900 odd fishing vessels and the men who understand the conditions 8,000 odd registered private motor boats to faced at sea. assess their total value. With these vessels ranging in cost from £200 to over £20,000 (3) In some Instances extra safety without equipment, their total value must equipment is required; it should be run into millions. The annual maintenance compact, light and easily accessible. figure would be a very large sum. (4) The cost of navigation and safety equipment Is a major item. Speaking of the economic value of the (5) It is possible to over-regulate for and craynshtng industry Dr. Sheard writes: to over-equip small vessels. The Commonwealth benefits through (6) The Department should be strict in Increased overseas exchange and through the survey of engine and hull and in receipts from taxation. With a primary the manning of a vessel. interest in overseas balances, and Hot 49

concerned with internal cost, save as South Abrolhos and Beagle Island (where that affects the relatively small taxation the "Alkimos" first grounded). A similar returns, the Commonwealth needs are situation arises at Esperance and again at met by an objective of a maximum sus­ Point Samson, and Port Hedland. tainable yield of good quality, best average weight crayfish tails. The State Schedule "F" to the Report of this Com­ of Western Australia, which benefits mission is a reproduction of a schedule which through increased purchasing power, accompanied Captain Piggford's submission. revenues in various fields, employment r commend it for close study and implemen­ for its citizens, and a higher degree of tation in the manner suggested by Captain social and economic stability, would re­ Piggford in his opening. I am aware that quire that the total cost does not exceed many of these proposals have received con­ the return. The regional centres of Fre­ sideration and that some may have been ap­ mantle and Geraldton gain through local proved, but they now have the additional revenues, increased local purchasing backing of a Royal Commission charged to power, growth and economic stabillty inquire into and report upon the safety of through local investment. Their inter­ certain ships which proceed outside the in­ ests would best be served by a measure land waters of this State and which habi­ of net economic gain. Individual fisher­ tually use the sealanes under consideration. men, operatives of all kinds, and entre­ peneurs benefit from more consistent THE ROLE OF PRIVATE ENTERPRISE. employment, higher incomes, and better Between the larger anchorages of Fre­ standards of living. (The Western Aus­ mantle and Geraldton the work of develop­ tralian Orayftshery, pp, 54-55.) ment has been carried out almost in its I propose now to deal with safety factors entirety by private enterprise, comprising the of a general nature. fishermen, the Co-operatives, private business houses associated with the fishing industry Coastal Lighthouses. and latterly, the oil companies. The tourist The need for better anchorages of ade­ industry has benefited from the opening-up quate depth and SUitably lighted has been of the coastline. In the wake of the tourists dealt with in my review of the causes of has come better access by road and better casualties. Of major importance in the safe communications generally. coastwise movement of all classes of vessels large and small is the existence of light­ There can be little doubt that the primary houses. This matter was dealt with in a sub­ object of heavy expenditure on the part of mission by Captain D. P. Piggford, reported private enterprise is the long range project at pp. 1847-1870 of the transcript. In Intro­ of utilising capital funds In profitable ven­ ducing the submission Captain Plggford tures. However the risk is theirs and the prefaced it with the following remarks: major benefit is the Nation's. I am appearing today on behalf of the To the fishermen has fallen the task of Company of Master Mariners of Austra­ exploring and pioneering. Where it has been lia, W.A. Branch, of which I have the necessary to mark passages, as at the Abrol­ honour to be the Deputy Master. hos, the fishermen have placed and main­ tained the markers. With the erection of In response to a request from this dwellings at the Abrolhos and at the remote Royal Commission, our Company has mainland anchorages the provision for water carefully considered the subject of supplies, lighting and sewage disposal has coastal lights and navigational aids in fallen to the fishermen or to the Co-opera­ Western Australia. tives and other traders. The major under­ Our committee found this quite a task, takings such as building jetties, light and and, our resulting report, is a formidable power installations, group housing, reticu­ one. However, we would like to stress lated water supplies and minor road making that we fully appreciate that all we have have fallen likewise to the Co-operatives and advocated could not be done at once and other traders. One private business house that the work and cost would have to estimates its capital expenditure under these be spread out over a number of years. headings at £30,000, with radio stations at another £2,200. By comparison, the expen­ If and when this programme has been diture of the same trader on processing completed, then in our opinion the West­ plants and refrigeration is estimated at ern Australian coast would be consid­ £110,000. One Co-operative estimates its ered to be reasonably well lit and pro­ capital expenditure on shore installations ex­ vided with aids which, at the moment, clusive of processing plants and refrigeration it patently is not. (Trans. p. 1847.) at £50,000. Another private business house Apart from its significance in the safety estimates its capital expenditure upon ser­ of oceangoing vessels subject to the Western vices usually provided by local or central Australian Marine Act, the document is of government authorities at £39,200. extreme importance In view of the proposed development of the Western Australian coast THE PUBLIC PURSE. by the establishment of harbours for deep Throughout the Commission's hearings the draft vessels, mainly ore carriers. The port Fremantle Boat Harbour has featured as the of Geraldtion is an outstanding example of nroud boast of Departmental expenditure on harbour development without properly lit the welfare of the fishing industry. Up to ocean approaches. I refer to the North and date it has cost in the vicinity of £450,000. (4)-97630 50

As a fishing boat harbour it is still incom­ The scheme also is regarded by the plete and in all probability it will never be State Government as a step towards an ideal fishing boat harbour on account of decentralisation of industry, by providing Its many other uses. A departmental pro­ facilities for the expansion of the fish­ fessional officer, who gave evidence, did not ing industry and paving the way tor the consider even 50 per cent. of the total cost development of processing plants and as a fair allocation to the fishing industry. the creation of local employment. Other uses of the area comprises the moor­ ing of Government owned floating plant in­ The wholesale value of the commercial cluding dredges, the pre-shipment treat­ fish catch in New South Wales averages ment and storage of north-west jetty com­ between £3,000,000 and £4,000,000 a year, ponents, the allocation of part of the re­ and the annual catch between 25 and claimed area for road widening, the same for 30 million pounds of fish. railway forward planning Including stand­ The New South Wales Government ard gauge, and the siting of other storage also is engaged in an improvement depots for Government use with road and scheme for major ports, such as New­ sea access. Unfortunately the provision of castle, Port Kembla and Clarence River a mooring area for large Government owned mouth. floating plant has left the entrance open to the westerly swell. At the time of my inspec­ Eden tniprouements. tion there was a strong but less than gale­ Announcing improvements to the fish­ force westerly wind, with a moderate swell, ing port of Eden the New South Wales causing a bad surge inside the northern Minister for Public Works, Mr. P. N. breakwater resulting in excessive heaving Ryan, said that the greatly increased and rubbing of berthed flshing vessels. safety provided by the breakwater would The following extracts from the May, 1964, encourage larger boats to operate from issue of the Fisheries Newsletter, published the port to exploit fishing grounds off by the Fisheries Branch of the Department the coast. of Primary Industry, Canberra, show recent It would allow the fieet of 40 boats to and anticipated Government expenditure on operate on a more efficient basis, he fishing boat harbours in New South Wales. said. Pictures are reprinted and shown In Ap­ Eden is one of the major New South pendix "C", figures 6 and 7, to this Report. Wales fishing ports with an annual N.S.W. Plans Chain ot Sate Ports. catch worth more than £500,000. With the development of the tuna fishery A chain of safe fishing ports is being based on this port this catch is likely to forged on the New South Wales coast by increase in value. the New South Wales Government. In the past seas coming from the To date expenditure of mote than south-east and east have caused a surge £1,300,000 has been approved on improve­ at the jetty to a height up to 6 ft., forc­ ments to seven fishing ports. Port works ing fishing boats to look for safer moor­ already have been completed at ings in other parts of Twofold Bay. This Bermagul (£160,000), Brunswick Heads happens as often as 10 thnes a year for (£262,000), Evans Head (£180,000) and periods of up to a week. Ulladulla (£187,000), work is in progress at Tweed Heads (£390,000 spent to date) The new breakwater will provide a and Crowdy Head (expenditure of high degree of protection both for the £49,000 approved) while the building of fishing fieet and for commercial shipping a breakwater costing £190,000 at Eden using the port of Eden. has been authorised. The following are some of the details given in respect of the ports pictured: In a number of N.S.W. coastal ports in the past fishing boats have been Cost No. of restricted in their operations by difficult Port Details to boats entrance conditions and insufficient Date served depth of water at the bar. In some £ cases boats have only been able to leave Ulladulla. Include two new break­ 187,000 24 waters-c-one 1,500 ft. port or return at high tide, and even long-the other 720 ft, then some times under dangerous con­ Evans Head Include two new break­ 180,226 25-30 ditions. waters-one 950 ft. long-the other 650 ft. Sate Entry. -100,000 tons of rock used The N.S.W. Government's plan aims to Tweed Heads Picture shows at least 390,000 30 overcome these difficulties by construe­ four gl'oynes or break­ Ing breakwaters, training walls and waters-work still in progress other associated harbour works so as to Bermagui .... Picture shows two 160,000 10-15 give safe entry at all stages of the tide. groynes or breakwaters (Plus 10 fortuna The ultimate aim is to link the whole season). of the New South Wales coastline with Eden .... Includes one new break- 190,000 31 water (Plus 10 a chain of safe fishing ports in those fortuna centres where the industry is actively season). working. 51

In view of the contribution by New South and mooring pens already planned for the Wales of 4.9% to the total exports of marine southern side of the boat harbour be pro­ products for the Commonwealth as com­ ceeded With to completion. pared with Western Australia's 69.9%, the fishing industry of the former State seems Whlle I have given pride of place earlier to have been remarkably well treated in the in this report to Geraldton as the best small matter of expenditure out of the public purse. boat harbour on the coast, it still requireS The vessels served are only a fraction in one additional divided slipway capable of number of those served by Western Austra­ slipping One large Or two small vessels. In lian anchorages and the illustrations in varl­ my opinion any other criticism of the Ger­ ous copies of "Fisheries Newsletter" do not aldton installations was carping rather than indicate that they are larger in size. constructive.

ALL WEATHER ANCHORAGES­ LESSER ANCHORAGES. URGENT NEEDS. The term "Iesser" has been used for want The claims of certain anchorages along of a better, implying of less importance when our coastline for conversion to protected and compared with the anchorages listed as fully equipped boat harbours has been dis­ priorities and which would provide a service cussed in Chapter IV of this report. Such for one hundred or more vessels regularly conversion would, as in the other States, in­ in the busy season. This does not exclude voive the provision of protection from the the possibility now present of one of the ocean swell by means of breakwaters 01' lesser anchorages, say Denham (Shark Bay), groynes, loading wharfs 01' jetties, deepen­ having over 100 vessels using the anchorage ing to accommodate large fishing 01' tourist in the flush snapper season or at any holiday vessels, similar deepening of channels to an­ time. The same could occur within ten years chorages, provision of ieading lights and day at Point Samson with the growth of the markers, provision of slipways and mooring spanish mackerel fishery and big game fish­ pens where practicable. No conversion could ing in the Dampier Archipeligo. be carried out safely without prior survey of the proposed new anchorage and its ap­ It was not possible for the Commission to proaches. make a careful inspection by land and sea of all anchorages Which have already The following order of priority for con­ reached the stage of commercial importance, struction of fishing boat harbours is based here listed as lesser anchorages. It is recom­ on their location and the density of concen­ mended that surveys, both physical and tration of vessels combined with need for economic, be undertaken promptly at the protectton.-> following places with a view to determining (1) Denison (Dongara). the immediate requirements by way of shore facilities from a safety angle and the ex­ (2) Lancelin. penditure warranted by Australtan-c-not (3) Jurien Bay. West Ausbraltan-c-standards of improve­ merits f'rom an economic angle: The following order of priority of con­ struction of multi-purpose small boat har­ Point Samson. bOUl'S for use by fishing boats, tourist vessels Carnarvon. and yachts is similarly based:- Shark Bay (Denham, Monkey Mia, South (1) Mandurah. Passage). (2) Rockingham. Murchison River (Kalbarri). Cliff Head (Freshwater Point, Knobby The needs are urgent in all cases. An Head). immediate start should be made with the Beagle Islands. survey and construction of the all-weather Snag Island. boat harbour at Denison and work should Green Head. proceed with the other anchorages listed Green ISland. with convenient haste. The Commission Cervantes Island. recommends accordingly. Wedge Island. Ledge Point. Reverting to Fremantle boat harbour, in­ Cape Leschenault. telligent iaymen not entirely unversed in the Yanchep. behaviour of the sea have suggested that an Safety Bay. L-shaped spur on the end of the northern Busselton (Dunsborough). breakwater would protect the anchorage Augusta (Cape Leeuwtn), from the westerly ocean swell, leaving plenty Nornalup (Denmark). of room for the passage of the dredge and Albany. fioating plant. While this idea has un­ Esperance. doubtedly received consideration previously, it is again submitted as a possible remedy for This list would require revision If occasion a seemingly unnecessary defect in an other­ arose, for example, Exmouth Gulf Is develop­ wise fine achievement in small boat harbour ing as a major prawn fishery and Onslow is construction. Furthermore, it is recommended stirring again as a commercial and sporting that the completion of the slipways, jetties fishing centre. 52

The improvements required at these an­ INSTRUCTION BOOKLETS. chorages listed could include anyone or more of the following features: single groyne, There is in existence an item of safety jetty or loading wharf, leading lights, marker equipment, the value of which cannot be buoys, day beacons, anchorage or channel gauged because of the intangible nature of deepening, slipways or jinker haulage its benefits. I refer to leaflets and booklets facilities. issued by aquatic sporting bodies, the Press and by some Government Departments from During the course of the Commission the time to time. It is not known-and the in­ mere mention of the provision of some of formation is not available-what benefit a these facilities, even at major anchorages, reader derives from reading such a pamphlet has created a tendency to scoff among per­ or booklet, but it is certain that sometime, sons who should have been better informed somewhere, a reader will gain a little know­ and who would now do well to reorientate ledge which will save a life. their thinking. Their vision should be fo­ Many readers will gain knowledge which cussed upon the wider horizon of world may save many lives. trade. No vessel can be properly surveyed unless it is slipped periodically, nor can it I refer to such publications as the Hand­ be made safe. So far as I am aware there book issued by the West Australian Water is no commercial slipway between Fremantle Ski Association and the Daily News Boating and Geraldton. It may be convenient for Handbook, both issued in 1962. The Police the Harbour and Light Department to direct Traffic Department's handbook "Over to vessels to either Geraldton or Fremantle for You" is a worthy forerunner issued for the dry survey, but it is not a sound economtc purpose of road safety. Volume 5 of the proposition for fishermen and it could be Australia Pilot has been mentioned in evid­ perilous. The only alternative is slipway 'encc as an official publication containing or jinker haulage along the coast to which valuable information about the Western vessels can be directed according to locality Australian coast. The Cruising Yacht Clubs and cycle of their operations. Moreover, issue booklets from time to time particularly technical officers of other Departments asso­ on the occasion of an ocean race. ciated with primary production go out of The "Daily News" handbook contains the their way to meet the producers on the pro­ following foreword, which speaks for itself: ducers' own territory. This should not be too much to expect of the Harbour and Boats and boating have been a major Light Department's officers. West Australian pastime since Captain James Stirling and the pioneer settlers The status to which the fishing industry first sailed up the Swan Riverin 1829. has grown in Western Australia can be River and sea are our heritage. To­ gauged from local export statistics tabu­ day, more than ever before, West Aus­ lated hereunder. The gloomy forecasts of tralians are finding pleasure on the a slump in the cray-ftshing section of the water. industry, which have become a hardy annual, have not materialised as yet. Periodical fluc­ Right now there's a spectacular boom tuation in overseas prices is merely a healthy in boating. There are new and excit­ feature which tends to keep a rein upon ingly-fast boats powered by high-power­ uneconomic operating. ed engines. The modern sports of water-skiing and under-water diving have combined with traditional yacht­ MAJOR WESTERN AUSTRALIAN ing and rowing. EXPORTS. The number of craft on the Swan River has increased three-fold in as (Excluding Wool, Grain, Petroleum many years. In the next few years it Products and Gold Bullion.) can be expected to double again. All this means the end of the old care­ Value of Exports free era when you could meander across Commodity Year ended Year ended the water in your boat unhampered by 30/6/63 30/6/64 regulations or worries about what any­ (a) one else in the world was doing. There's still room for all-but like our £'000 £'000 Marine Products 5,348 5,872 highways, the increase in traffic has Beef and Veal 4,691 5,748 meant rules have to be laid down and Timber 3,620 3,406 obeyed on the water. Skins and Hides. 2,169 2,482 Flour 2,320 2,107 They are commonsense rules: no bur­ Fresh Fruit 2,647 2,089 den to the intelligent boating enthusiast. Iron Ore .. 1,471 1,348 Mutton and Lamb 1,200 947 They go with all the other practical rules Sheep 1747 716 for boating developed overseas and in Cattle . 80 128 W.A. over the years. ~1l4 61 Butter This booklet contains all the official rules and regulations you will need to (aY Subject to Revision. know for boating in Western Australia, Source: Commonwealth Statistician. as well as lots of practical hints. 53

It is a commonsense booklet filled with PASSENGER VESSELS. information to help the West Australian The attention of the Commission was boating man. Whether you are a barn­ drawn to the safety requirements concern­ acled expert 01' a first-time sailor-a few ing passenger vessels, which proceed out­ minutes' study of the following pages side the inner harbour at Fremantle but re­ will help you before you cast off. main within the confines of Cockburn Sound All that is here has been compiled for and Gage Roads, 'by a witness H. S. S. Neil­ your safety. son, retired civil servant of South Perth. The The Harbour and Light Department has following extracts from his evidence contain a handbook in an advanced stage of pre­ the essence of his submissions: paration, which could be developed along As a layman I wish to state my views the same lines as the "Daily News" publica­ on present safety measures in force for tion, but devoted more to the use of ocean­ passengers travelling by sea to Rottnest going vessels and containing detailed in­ and Garden Islands, and the need for formation about movement coastwise and revision of such safety measures. coastal anchorages. Such a handbook, if completed, could be issued to all licensees of The regulations regarding lifeboats for vessels and to persons holding certificates as ships leaving Fremantle are very strict. skippers or coxswains, as well as to owners They must be in good order and of suffi­ of registered pleasure boats. All this is cient number to accommodate all the holding up the completion and publication of passengers and crew in an emergency. this booklet is lack of staff. Yet it is possible to see boats like the "islander" laden with passengers leaving Aquatic sporting bodies, which have pro­ Fremantie harbour to cross an open ceeded to the publication of their own safety stretch of ocean with no such safety booklet, and the Press are to be commended measures. Beyond carrying buoyancy for their enterprise. It is recommended that equipment which for the most part con­ work on the Harbour and Light Department's sists of seat forms with drums under­ handbook be enabled to proceed forthwith neath that would float in the water, and that the required staff be made avail­ there is nothing carried in the way of able for the purpose. This will enable the lifeboat protection for passengers in an Department to pursue one of its functions emergency. of being an education medium as well as a policing authority. Ordinary lifeboats would be impractic­ able to carry but inflatable life-rafts VOLUNTARY ENFORCEMENT. could easily be carried that would give a measure of safety to passengers that Many of the Yacht Clubs and other aquatic is totally lacking at present. sporting bodies are so well organised and their members so well disciplined, that it In "The West Australian" on Satur­ would be a simple matter for the Clubs or day 4th instant (July) there appeared Associations to take over the voluntary en­ an account of a vessel with a steel hull forcement of the Navigable Waters Regula­ striking a submerged obj ect in the Par­ tions and any other regulations which may mella Channel. be extended to private vessels. It is not sug­ * * * * gested that any such body should be obliged In the incident quoted the boat was to take part In the prosecution of one of its finally able to clear itself from the sub­ own members, but merely that senior club merged object It struck. I have the ex­ officials be armed with the necessary statu­ tract from "The West Australian" with tory powers. The same principle could be me. The position Is that if that object extended to local rescue committees and to had been struck by a wooden hulled boat officers of local governing bodies where they like the "Zephyr", the bottom could easily are agreeable to accept the responsibility. have been ripped out. What would have It is recommended that the Department be been the position if that had happened given power to issue the necessary authori­ with no radio to communicate with the ties where it does not already possess such shore and no lifeboats? All they would power. Something similar to regulation 30 have had if that boat had gone under, of the Survey and Equipment Regulations would have been the seat forms with the would seem to be required. drums underneath. Regarding cray boats and fishing boats a few lives are In­ It is considered inadvisable that the De­ volved and they are all men. On these partment should delegate any of its auth­ wooden hulled boats you could have ority in respect of members of the general hundreds of passengers, not only men public to private persons not accredited by but women and children as well. There well established yacht clubs, sporting bodies, is nothing more than those seat forms local rescue organisation, or shire councils. with drums underneath; there is nothing It is feared that such unaccredited persons in the way of lifeboats. Numerous would tend to be guided by zeal rather than things could happen outside Fremantle by common sense. Any officiousness or en­ Harbour. (Trans. pp. 1054-55.) croachment upon liberty not authorised by Parliament would be fatal to the acceptance At lily request Mr. A. F. McKimmie, En­ of additional safety requirements by mem­ gineer Surveyor, of the Harbour and Light bers of the public sub] ect thereto. Department, submitted an outline of the pre- 54 cautions taken by the Department in respect moles the areas are di­ of both annual surveys and trip inspections vided by six and nine re­ of such vessels. The evidence follows: spectively; Outline of method of inspection and (il) the number for which control of passenger vessels proceeding seating accommodation is outside Fremantle moles but within the provided is arrived at by limits of Port of Fremantle: dividing by 1.5 the total length In feet of the seat­ (1) A file of each individual vessel is Ing; maintained which contains a complete history of the vessel (iii) the maximum number of since it came under the jurisdic­ persons allowed is the tion of the Harbour and Light least arrived at by apply­ Department. This records the ing each of the above pro­ result of each inspection, any visions; defects found and all repairs (iv) the maximum number of carried out. persons shall not be (2) Hull is inspected internally and allowed unless the sur­ externally cleaned off and dry veyor be satlsfied that the on a slip annually, in the case seaworthiness and stabil­ of a steel hull by an engineer ity are such that the surveyor or in the case of a vessel can safely carry wooden hull by a shipwright sur­ such number of persons. veyor. At this inspection sea Life-saving equipment is as laid down valves and all under water fit­ by regulation for Class III ships page 40 tings are Inspected, tailshafts of Regulations. are drawn for examination and wear every two years. Legislation has recently been approved that these vessels be fitted with radio­ (3) Boilers are examined internally telephone. (Trans. p. 1832.) and externally with all mount­ ings each year and afterwards Mr. Neilson's comments are simple, but under steam when safety vaives factual. What would happen if a fully laden are seen to relieve at the de­ passenger vessel overturned or sank quickly signed pressure when checked halfway between the North Mole and Rott­ against a "Standard Pressure nest Island in a fierce south-westerly could Gauge". What is considered to be left only to the imagination. I fear that be a reasonable amount of the loss of life would be grant. What can machinery is examined each be done about it is no easy matter to deter­ year when opened up and after­ mine. wards under working conditions. Under fa vourable conditions and with a At this inspection bilge and fire sufficient number of strong swimmers on pumps are seen working. board to take care of the feeble and the (4) Annual inspection is made of helpless in the water; to help them to the each item of lifesaving equip­ buoyant material and to hold them there ment and ships' equipment. This until relief arrived, loss of life could be kept Includes navigation lights, dis­ down to a minimum. Where all of these tress signals, fire fighting equip­ favourable conditions did not exist the loss ment, anehors and cables. of life would be increased accordingly. Some consolation may be found In the fact that (5) The number of persons on board no such disaster has yet overtaken one of is checked on each voyage at the ocean-going passenger ferries, but It is Perth and Fremantle and at a possibility which cannot be ruled out. Rottnest when considered neces­ sary by a Swan River inspector. Mr. Neilson has suggested the carrying of The number of passengers is re­ inflatable life rafts. This suggestion has my duced according to the amount support. Although a costly item they would of cargo carried. No dangerous be a most practical addition to the equip­ cargoes are permitted when ment already carried. I am aware that the carrying passengers. Harbour and Light Department has given this subject considerable thought and atten­ (6) The number of passengers is tion and I do not propose to recommend arrived at by- specific measures for improvement. The (I) dividing by four the clear provision that the vessels be fitted with space available for their radio-telephone is a forward step. I con­ accommodation on the sider that the Department should reassess main deck measured in the whole matter of oceangoing passenger square feet and by six on ferries in the light of modern practice in the upper decks or below main other States and abroad. Furthermore, I deck areas when the ves­ consider that the Department should inves­ sel Is operating inside tigate the possibiIlty of compelling these ves­ Fremantle moles. When sels to carry sufficient of the large self­ operating outside the inflating life rafts to float all of the feeble 55 and helpless passengers likely to be on board we get various men representing, say, at anyone time, with a substantial safety the iron ore companies who want to margin. It would be a wrong attitude to say charter a boat to do various jobs, but we that the matter has been examined over and find we have not the proper credentials over and that nothing can be done. Expense to carry out a charter. must not be the deciding factor. I recom­ mend in accordance with the foregoing con­ clusions. * * * * However, I think that fishing boats QUALITY AND AVAILABILITY OF SAFETY should be permitted to do a lot of char­ EQUIPMENT. ter work in this area because it assists Members of the Commission were most us in the off-season and I think our exist­ favourably impressed by the quality and ing credentials are good enough to do range of safety equipment demonstrated by these charters, particularly in these the suppliers at tests carried out afloat on waters up here. Here we know them Melville Water and from the air and afloat better than anyone and I have found in Gage roads, during the progress of and as skippers up here with higher credentials part of the Commission's investigations. than us but they have had to come to us This does not mean that any intending pur­ for knowledge of the area anyway. chaser should open his wallet and buy any­ By the Commissioner: What is in­ thing that resembles the article he is seeking. volved in a charter? Can you give me an There is no need for this. There are suffi­ example?-Someone wants to go to some cient items of equipment available to enable part of the coast and it is just a matter him to choose each article of a kind that will of carting personnel and equipment to measure up to the requirements of the Har­ a specific area and then bringing them bour and Light Department. Undoubtedly back again. there are available sub-standard articles which are so well finished and packaged as to deceive the unwary boat owner. Competi­ * * * * tion between the suppliers is so keen and I would never be able to get a Grade local manufacturers so eager to compete that 1 master's certificate, not for coastal quality should be high while prices find a trade, even if I studied hard and became reasonable low level. I feel confident that a full bottle on navigation and the suppliers and manufacturers will maintain whole works, because I have not served stocks of various types of equipment if the time on a trading vessel. You have to demand materialises. serve four or five years on a coastal trader whether you have a master's If boatowners are obliged by regulation to ticket or not. I did want to do charter invest in safety equipment it follows that the work but I have to be on a State ship Harbour and Light Department should be for five years. Time on a fishing vessel empowered to stamp unsold articles as being does not count. You might have been up to Australian standard requirements. a skipper on a fishing boat for 20 years Such a stamp would be the purchaser's and know as much about the game as guarantee of suitability and quality. I re­ anyone but you are not allowed to do commend accordingly. Misuse or imitation charter work. There should be an of the Department's stamp should carry a amendment to the legislation. (Trans. heavy penalty and I so recommend. pp. 1674-76.) TAXATION-THE FISHING INDUSTRY. It is likely that to permit fishing vessels This is an item not included in the subject to engage in charter work would raise the ire of owners of vessels, which are available matter of the Royal Commission but it has for such work although not located in re­ been raised by witnesses in association with mote areas. I do not regard this possibility costs in the fishing industry and of safety as a fatal objection to dealing with parttcu­ equipment in particular. Set out in Appen­ lar cases on their merits. In my opinion dix "G" to this Report is a letter received cases would undoubtedly arise where the from the Deputy Commissioner of Taxation Department would be justified in granting in answer to an inquiry from myself. The a special permit to meet the occasion. Sec­ information which relates to Taxation con­ tion 192 of the Western Australian Marine cessions is included for the benefit of fisher­ Act appears to contemplate the granting of men and others associated with the industry. such permits, although it is doubtful whether the section overcomes the dtfflculty about the CHARTER BOATS. master of such a vessel. In order to meet This is another item not included in the the development needs of our long and sparsely populated coastline I recommend subject matter of the Royal Commission, but that the Harbour and Light Department be raised by witnesses in association with the given whatever additional authority is qualifications of skippers. Grade 2 skipper necessary to grant permits for vessels and and fisherman W. A. Miller, of Point Samson, their skippers for the time being to engage stated: in charter work in particular cases having I think there should be some move regard to all of the circumstances, provided made in regard to charter boat opera­ that no such permit be granted to a person tions. From time to time in this area not holding a grade 2 certificate or better. 56

EDUCATION IN NAVIGATION AND orthodox services, could be used to pro­ NAUTICAL KNOWLEDGE. vide a more useful service In predicting swell of distant origin. Reference has been made earlier in this Report to the Education Department's Fishermen become quite expert at pre­ courses in coastai Navigation and Nautical dicting local weather on a short term Knowledge which were introduced at the basis. They have difficulty In interpret­ Fremantle Technical School in February, ing effects of originating at some distant 1962. The introduction of the courses met point. with immediate success and day classes were later extended to evening classes and a cor­ PART 7. respondence course. For professional fisher­ men the classes have been extended to em­ Reference (g): "and, further, the insurance brace navigation and seamanship for of such ships and recommendations for candidates for certificate of competency as measures to provide a better coverage Skipper, Grade 2, of a fishing vessel. The for those ships against all or major coastal navigation course has continued to risks," prove popular with yachtsmen and boat owners. The evidence given by fishermen and representatiyes of their associations at various ports and anchorages may be Now that this venture has emerged from summarised under the following headings: the pilot stage and has proved its value under actual working conditions, it is the (1) Rates charged by insurers are un­ opinion of this Commission that it should be duly high. availed of freely by professional fishermen, (2) That the high rates are due in some yachtsmen and boat owners generally. The measure to the high loss ratio in the Technical Education Division of the Depart­ fishing Industry. ment issues its own non-commerclal certifi­ cate to candidates who have passed in (3) That if adequate consideration had Coastal Navigation and Nautical Knowledge. been given in the first Instance by Any yachtsman or boat owner should be the insurers to the age, condition proud to possess one of these certificates. and proposed value of the vessels The course is professional in conception and insured and to the records and design. It is under the guidance of a master qualifications of the skippers many mariner, foreign going, and amateur skip­ of the losses would not have been pers are Indeed fortunate to have it at their incurred. disposal. (4) That the experienced and careful owner is being penalised for the I take the liberty of recommending that errors of the less experienced and these courses be given wider publicity among less careful owner. professional fishermen, yachtsmen, at marine centres and among boat owners, and that (5) That a system of no claim rebates the Education Department continue to make would do much to alleviate the sufficient day, evening and correspondence hardship referred to in 4 above. classes available. (6) That if as the result of the findings of this Commission a boat owner is obliged to become Involved in fur­ METEOROLOGY. ther heavy expenditure for safety The general weather pattern, monthly, purposes he Is entitled to expect a according to Dr. Sheard has been quoted. His proportionate reduction in insurance further written submissions are of interest: rates. The Weather Bureau has instituted a (7) That there is considerable and con­ system of broadcasting regional reports fusing variation between insurers in for the use of fishermen and small craft the matter of risks covered. operators. These forecasts are of con­ (8) That one insurer should handle the siderable value. One factor not yet con­ whole of the business of the fishing sidered in giving these warning services industry with a view to reduction of Is that of swell prediction where the rates as a consideration. swell is determined by distant storms (that due to local storms is well covered). The answers given by brokers In reply to Distant storms, however,can result in these submissions are again summarised and local swell of considerable magnitude, given the same numbering, as follow: long distances from the storm area. (1) The present fishing boat rates are (For example swells due to storms off due to: New Zealand are readily measurable (a) the Increase In claims Inci­ and identifiable off the coast of Cali­ dents, fornla). It could be expected that storms in the Ceneral (and Western Indian (b) the high loss ratio of claims Ocean) could result in excess swell on against premiums, the Western Australian Continental (c) the Increase In claims costs shelf. Postbly the new weather satellites due to- . could provide Information, which, to­ (I) Increase in cost of re­ gether with that obtained from more pairs, 57

(il) higher salvage expenses, The evidence of fishermen disclosed many (Iil) unreasonable salvage sad cases of loss of property and life where claims being made when there was no insurance coverage, or where only a nominal towage the insurers had repudiated claims even I~ Involved. where the vessel was known to be seaworthy. It is usual for a marine policy to include (2) Agreed, see l. a condition that the vessel insured must at all times be covered by a current certificate (3) InsureraIrave restrtctions on age of of seaworthiness. It is not possible in every vessels proposed for Insurance norm- case for surveys to be carried out on or prior ally an age limit of 15 years, In­ to the due date. There are many circum­ surers rely upon the survey certt­ stances Which operate to defeat the best of 'ficatlon of the Harbour and Light intentions such as the non-availablllty of sur­ Department as to the seawortntness veyors, Illness, engine breakdown and the of the vessel and the qualtncatlons like. The survey of some 900 vessels spread of the person In charge of the craft. out over the coastline between Esperance Brokers endeavour to check other and Wyndham must necessarily be staggered. proposal form information and the moral risk, A suggestion by one of the Insurers that constderatton could be given to the owners (4) The owner of a boat which Is sub­ of vessels forming what Is known as a Mutual ject to continuous small or medium Club which in essence, issued Its own poltcies 'accldenw pays a higher premium with sultable re-insurance arrangements for than the owner of a boat who does major catastrophes and total losses, is worthy not have those accidents, It has of attention by nshermen's assoclattons and been known that the flshermen who the co-operatives. At least one fishermen's consistently have clatms find It representative mentioned such a move In extremely'dtfftcult to get any lnsur­ evidence and I commend the idea lor fur­ ance at all: ther consideration. (5) There I~ no system of a no-claim bonus in marine insurance except During discussions and on inspections it with private launches, 'I'hese latter became apparent that there could be many vessels are carefully Inspected for persons engaged In the fishing Industry who seaworthiness and tI;1e moral rtsk were "workers" within the meaning of the considered. The Insurers are pro­ Workers' Compensation Act, but who were tected against lack of due dlllgence. not regarded as such. I consider that it The precautions result In a lower would be advisable for fishermen's associa­ loss ratio and lower premiums. tions to draw up a list of the various ways in which personnel are engaged and remun­ (6) If, for example, a boat owner re­ erated in the industry and obtain counsel's quested a spectal rate for his boat opinion on the question of owners' lIablllty which had positive buoyancy because for workers' compensatton, , of the Installatlon of some reputable , buoyancy material the underwriters Mr. R. T. Napier, my Adviser, made the would quote a much lower rate. following submissions with Which I concur: Slinnal'ly, for steel ships with dtesel "engines there ts a definite reduction The matter of insurance in the first , 'iilth,,' 'rate charged for 'a wooden Instance appears to me one for the In­ 'ship\"ith'a,petrol engine. ' dividual who mayor may not care to ~hel:~ ar~ 'sta~i1ard ty~e~ take out a personal accident or loss of ';7) , .. of cover life cover. and the Insurers do not depart from anyone or combination of them. It was evident throughout the hear­ The type of cover on any particular Ing by the Commission that the expert vessel I~ purely a matter of selection professional fisherman With many years by the owner. experience rarely was concerned in an accident. , (8) Whether the handling of the whole of tne jmstness of the ftshlng In­ However, with the growth of the fish­ dustry would lead' to a reduction in Ing Industry in iatter years and less ex­ rates Is problematical as the prtn­ perienced men fishing, accidents and clple of nocompetitlori and selection loss of life and vessels has become a .. among vartous insurers would be problem. Many wives of deceased lo~t. fishermen, skipper and crew are left pennlless by reason of iack of fore­ 'There I~ little comment which can be made thought or deliberate avoidance of ex­ either "upon' the ftshermen's submlsslons or pending money on insurance. "the 'Insurers'. The: facts appear to be as "~tated· :tn·th:e·an~wers.'One' insurer, Inde­ Whilst workers compensation could ,-,pendelit'uf'any group, gave the flgures for cover some fishermen, I venture to say , ',the' business transacted in respect of small that the majority have no claim under , .cratt for the years 1951-52 to 1963-64. Pre­ this Act by reason of thc method of ,',' .mtums amounted, to £39,604, and vclaims to working, I.e, on a share basis of the

, £'55414I , a loss ratio of 140 per,. cent. profits. 58

Insurance companies cannot, I feel, be It is also recommended that insurers give blamed for the premiums applying as further consideration to a no-claim bonus losses have been very heavy over the past scheme for commercial fishing vessels. I years. feel sure that such a scheme would promote Finally, I consider that some form of greater attention to safe handling of vessels compulsory insurance should apply to all during fishing operations. persons engaged in fishing either as owners or crew in relation to personal The Secretary of the ~ock Lobster/Cray­ accidents or loss of life. fish Industry Development Association of Some fishing co-operatives or organi­ Australia, which. nrst raised t-he matter of sations are at present loath to force the extension of the terms. of reference to owners or crews to insure against accid­ include insurance, answered my request for ent 01' loss of life by reason of refusal comprehensive proposals. in the following to work for that particular association, manner: thus losing work hands. Therefore, a compulsory system seems the only solu­ I have now to advise that your request has received the close attention of our tion. members but it is regretted that, because No doubt skippers could pay the pre­ of the complex nature of the risks and mium required and deduct from salaries the highly technical factors Involved, the 01' commissions due. Association is. unable to P\lt forward any The matter of boat insurance I con­ comprehensive proposals. However, after sider is one only the individual can lengthy dtscusslons at a recent fully decide. representative meeting of members of the Until more care is taken by skipper" Association, It was. agreed tb.at the Royal of boats to avoid accident to boats and Commission be informed that the Asso­ whilst claims are so many, I cannot see ciation favoured compulsory insurance insurance companies reducing premiums for crews and that, although it could to a degree where business is not profit­ not put forward a scheme of insurance, able; thus I feel little can be done in it recommended that the Commission this respect as I do not favour compul­ give consideration to establishing special sory legislation to insure boats. legislation to cover loss of life and spect­ fled serious disability arising from Injury To these submissions I add a recommenda­ in the fishing industry. In this connec­ tion that legislation be introduced to prevent tion the Association believes that satis­ a marine insurance claim from being de­ factory cover could not be given under feated merely on account of the non-exist­ the Workers' compensation legislation. ence of a current certificate of seaworthiness (Letter 12jl0j64-Exhlbit 59-Perth.) where it can be shown- (1) that the vessel was in a seaworthy The Association dealt with the matter of condition immediately before the Insurance of vessels in its original submis­ casualty occurred; sions reported at. pages 1269·1:189 of the transcript notes. The evidence has been In­ (2) that the non-existence of a current cluded in the summary dtsoussed at the certificate of seaworthiness was not beginning of this. Part of the Report. I have due to any lack of diligence on the nothing further to add to Mr. l:i"apier's com­ part of the owner or person in ments on the matter of compulsory insur­ charge; ance for crews beyond stating that in my (3) that the insurer has not been pre­ opinion such a scheme has considerable judiced by the omission. merit.

CHAPTER VI.-CONCLUSION.

It would not be proper to conclude this day-In day-out from l:iovember to, August. Report without paying a tribute to the It takes a gale-force wind to stop them career fishermen who, assisted by private venturing out, or a neavlly bUaklng sea, or enterprise and their OWl} co-operatives, have both. This IS not stupidity Ql.1 their part. built up an export Industry to such an ex­ There are. boats and gear to be paid for, tent as greatly to exceed al other Australian loans to be repaid, families to be maintained, states combined and, within this State, to children to be educated. There Is no 40­ rival ali other exports of foodstuffs, grain hour week, no sick leave, no holidays. New alone excepted. Crayfish export is second gear and leisure time can be assured only largest in the world-a close second to south by money in the bank or a good credit rating Africa. (Sheard p. 39.) with the Co-op or private trader. Their's Quotations in the Report from the tran­ is a kind of courage Which has distlnguisned script notes of evidence should convincingly the native born and the naturalised Austra­ Illustrate the courage of the full-time pro­ lian citizen in other flelds. The career fessional fishermen in carrying out their fisherman is an Individualist ready to learn dally occupation on the treacherous reef and to calculate with care the risks he knows country which is the habitat of the crayfish, he must take. 59 The degree and quality of comradeship posal for the creation of a Maritime Services shown between fishermen in rescue work Board to control all matters maritime; the has the same high rating as their courage. shortening of the crayfish season south of There exists an ever-present readiness to latitude 30 South in order to avoid the risk boats and llves in search and rescue­ worst of the winter; the improvement of gale-force winds and heavily breaking seas telephone communications; as well as a notwithstanding. number of others of equal importance. The evidence. was received and recorded, but not There is no discernible difference between followed up. The matters referred to are the fisherman and the erutstng Yachtsman not dealt with in the Report. on this coast. It takes the same degree of courage and perhaps a higher degree of Finally, I wish to thank sincerely all of seamanship to drIve a lightly built racing the witnesses who devoted their time and hull, carrying sail to maximum capacity, day the benefit of their knowledge to assisting and night against a south-westerly of the Royal Commission to arrive at the fore­ moderate gale force. going findings. In particular I wish to thank those witnesses who must have spent many The most that legislation can do Is to hours in preparing written submtsstons prescribe minimum safety requirements, the whlch, In themselves, represented painstaking degree of seaworthines and seamanship re­ research and report upon the SUbject matter quired of ships and men respectively and dealt with. I am deeply Indebted to the the minimum standards of quality. It is traders who arranged demonstrations, whlle the task of the Department concerned to being content to remain anonymous as all administer and to enforce the Ieglslatton. of them were. Special thanks are due to the To those ends It must be properly staffed Department of Clvll Aviation and the Fre­ and equipped. To complete the picture, mantle Harbour Trust for arranging a [olnt anchorages and their approaches must be demonstration of air-sea rescue work with well llghted and of sufficient size and the Department's Commander atrerart and depth to accommodate homing vessels.. the sea-going launch "Challenger" belonging Shore facllities must be adequate to provide to the Trust. The combined operation for surveys, maintenance and for any demonstrated the effectiveness of a selection ordinary emergency. of safety equipment, old and new, now made The rest Is up to the ship and those on the subject of recommendations herein. I hoard. Seamanship and sea sense to know know that all of those persons who have how to handle a risk calculated or unforeseen assisted the Commission will derive much are the final requirements which will ensure satisfaction if this Report achieves any of maximum safety. This still falls short of its objectives to a substantial degree. absolute safety which the sea does not Dated at Perth this 9th day of November, recognise. 1964. There were some matters raised before the Your obedient servant, Royal Commission, related to the terms of reference but not, in my opinion, within W. J. WALLWORK, their scope. These matters included a pro- Royal Commissioner. 60

APPENDIX U A oJ

Sworn evidence was adduced from the following witnesses who aTC shown in their order of appearance before the Royal Com. mission. The pages of the transcript at which the evidence of each witness is found. appears opposite tho name of the witness.

Witness Occupation Pages Geraldlon I. Hartley, Captain Coulton Harbour Master. 2-27 2. 'I'revia, Gaetano President, Fishermen's Co-operative ... 28-48 3. Kannikoski, Laud J. Fisherman 49-54 4. Bombara, Francesco do. 55-63 5. Findlay, Henry R. do. 64-67 6. Mcfronald, Ray M. do. 68-71 7. Rolland. James 'r. do. 72-77 Donqora 8. Foster, Kenneth Fisherman 78-106 9. Bailey. James (re-called) do. 107-138 1494-1501 2117-2124 10. Garton, Percy R. do. 139-141 II. Lewis, Stanley M. do. 142-156 12. Money, Francis B. do. 157-160 13. Henneberry, John A. do. 170-182 14. Knowler, Sidney A. ,.. do. 183-185 15. Hill. Clement L. do. 186-197 16. Napier, Richard '1'. Chief Inspector of Police 198-212

Jurien Bay 17. Dobbyn, Lionel Storekeeper 213-225 18. Van Gelder, Johannes C. Fisherman 226-236 19. Riggs, Edward G. do. 237-251 20. Wilson, Herbert B. do. 252-256 21. Norris, Stanley J. do. 257-258 22. Hastings, Hugh do. 259-266

Cervanle-s 23. Rogers, Ronald J. Storekeeper 267-270

IAJ.ncdin 24. Bateman, Clarence B. Fisherman 271-284 25. Carter, Colin V. do. 285-295 26. Cooper, Kevin J. do. 296-300 27. Cousins, Cecil J. do. 301-307 28. Hubbard, Kevin A. . do. 308-311 29. Dray, Leonard E. do. 312-324 30. Helliwell, Arthur E. do. 325-332 31. Oliver, James K. do. 333-344 32. Melvin, John ... do. 345-350 353-354 33. Hemersley, Walter T. do. (part time) 351-352

jJfandurah 34. Scott, Charles H. Caravan Proprietor 355-370 35. Sutt-on, Henry J. Grazier, representing Meudureh Shire Council 371-383 36. Renfrey, Lionel G. Fisherman 384-393

Rockingham 37. Wilson, Oliver W. Fisherman 394-408 38. Hansen, Theodore A. Master Baker, Rear Commodore Cruising Yacht Club 409-412 39. Taylor, Thomas G. W. Fisherman 413-440 40. Waters, Joseph R. do. 441-446

Bunbur!l 41. Allsop, Christopher R. S. Harbour Master (Captain) 447-457 42. Knepinski, Sigmund Fisherman 458-474 43. Seuloa, Emmanuel do. 475-581 44. Jones, Robert P. do. 482-487 45. Blick, Reginald H. Fisherman and Boat Hirer 488-495 46. Goodlad, Matthew .... Fishermen 496-500 47. Dedman, Roy F. ...--: -~----SOlfo61'Principal 501-514

Bueeeltan 48. Weston, Albert E. Retired Businessman 515-537 49. Harris, Ebenezer C.. Fisherman 538-545 50. Collett, Donald B. do. 516-554 51. Smith, Geoffrey K. do. 555-561

Augusta 52. Horner, Arthur F. Fisherman 562-580 53. Hadley, William D. . do. 581-590 54. Pike, Thomas A. Fisherman 591-597 55. Overton, Ivan W. do. 598-607

Albany 56. Augustson, Graham J. Fisherman 668-628 57. Swarbrick, Norman K. do. 629-644 58. Millidge, Captain Thomas H. Harbour Master ... 645-654 61

APPENDIX H A "-continued

'Vitness Ocoupatdon Pegee Walpole .59. Hull, John D. Farmer ...... 655-ll58 60. Swarbrick, John '1'...... Boat Builder and Guest House Proprietor ... 658A-672 61. Griggs, Albert L. (re-called) Deepsea Fisherman 673-681 17311--1755 62. Swarbrick, 'l'homae H. Retired 682-686 63. Swarbrlck, Thomas Edward Sawmill Manager 687-691 64. Burnside, Robert B ... Farmer and School Bus Driver 692-694 65. Harbin, John P. W. Guest House Proprietor 695-ll99 66. 'I'hompson, Eric S. Postmaster 700-704

Frenumtle 67. i\IeKimmie, Alex F. (re-called] Engineer, Ships Surveyor 705-729 744--747 1829-1834 1851>--1856 68. Armstrong, Peter Civil Servant, Harbour and Light Department 730-743 69. Bradshaw, Captain Allen G. Master Mariner 748-759 70. Elliott, Captain Gordon B. .. Marine Surveyor and Assessor 760-768 n. Bateman, Aubrey J. Civil Servant 769-785 72. Jackson, Ronald P. H. Business Director 786-805 73. Oswald, James W. (re-called) Business Manager 806--812 963-967 74. Bourne, Geoffrey Manager, Prince Launch Service, Retired R.N. 813-831 75. Mtragllotta, Salvatore {re-called} Fisherman 832-867 1806--1813 1902-1905 76. Watson, John (re-called) (Capt.} Meteorological Agent and Compass Adjuster 868-876 19'6-1957 77. Robinson, Thomas B. (re-called) Departmental Manager 876-900 .928 78. Simmons, Henrv T.. Radio Engineer. 901-925 79. Poole, 'Villiam ·R. Fisherman 925A-947 SO. Borg, Oscar Secretary, Fremantle Fishermen's Co-op. Soc. Ltd. 9'8-962

Perth si. Murphy, Thomas W. Commanding Officer, R.A.A.F. Pearce 968-1001 82. Chapman, Philip J. O(C. O.T.C. Coastal Radio Service 1002-1021 83. McDonald, Donald .. Superintendent of Operations, Department of Civil 1022-1037 Aviation 84. Pritchard, Robin K .. Inspector Air Safety Department of Civil Aviation 1038-1045 85. Fitzhardinge, John B. Architect, Past Commodore Royal Perth Yacht Club 1046--1053 86. Neilson, Hamish N.. Retired 1054--1016 87. Edmonds, Fred W. Engineer ...... 1067-1094 S8. Gibson, Alfred J. Yard Boatswain, Marina 1095-1099 89. Watson, Kingsley L. Aerial Survey Contractor 1100-1116 90. Hugill, Robert E. Fisherman ...... 1117-1128 91. Finn, Mervyn J. (re-called] Commodore, Royal Freshwater Bay Yacht CliIb 1129-1161 1173-1175 1958-1966 92. Watson, John C. Company Manager 1152-1172 93. Young, Graham R. Company Director 1176--1191 94. Chrystal, Gerald W. Marina Operator 1192-1199 95. Lawrance, Lionel C. Boat Dealer ... 1200-1242 96. Case, Alec ... Proprietor Alec's Merino Centre 1243-1258 97. Annear, Edward J. Business Manager 1259-1289 2098-2116 98. Andrlik, Robert B. Manufacturer's Representative 1290-1303

Abrolhos (Pel.sart Group) 99. McAullay, Cedric J. Fisherman 1304--1315 100. Bombara, Arthur (re-called) do. 1316--1330 1372-1376 101. Travia, Philip do. ... 1331-1347 102. Liddon, Sidney T. Fisherman and Shipwright 1348-1371 103. Glazier, Maurice H ..... Fisherman 1377-1394 104. Boschetti, John A. ... do. 1395-1403 105. Bertelson, Ronald C. do. 1404--1406

Geraldlon (2nd Sitting) 106. Rogers, John . Fisherman 1407-1422 107. Robertson, James, J. M. do. 1423-1438 108. Taylor, Lionel G. do. 1439-1448 109. Newbold, William '1" do...... 1449-1484 110. Lemmon, Francis H. Manager, Gernldton Fishermen's Co-op. 1485-1493 111. Schramm, Gordon Fisherman 1505-1511 112. Jonger, Joseph do. 1512-1518 113. Sweetb, Robert C. 'do. 1519-1521 Il4. Burton, William F. do. 1522-1526 62

APPENDIX U A "-amtinued

Witness Occupation Pages Kafoot'ti U5. Ross, Hamish H...... TouriIit Resort Proprietor 1526A-1532 116. Cornell, Edward A. (Recalled) Fisherman 1633-1546 1670-1674 117. Browne, Mervyn D. Storekeeper 1647-1554 U8. Glass, William A. Ftahennen 1555~1057 llt}.. Bumbek, Samuel do. 1558-1563 120. Dalgleish, Edward do. 1664-1566 121. Dalgleish, Keith A. do. 1567 12-2. Dalgleish, John F. . Carrier and Service Station Owner 1668-1569 Denham 123. Hoult, Riohard O. Fisherman 1676-1686 124. Poland, James T. do. 1686-1689 125. Harper, Ronald do. 1690-1692 126. cross, George T. do. 1693-1696 127. Ballottie, Laurance A. do. ... 1696-1599 128. Campbell, Frederick J. (Recalled) Fisheries Inspector 1600-1609 1617 129. Greening, John l\L Tourist Boat Proprietor 1610-1616

Oarnarvon 130. Parry, Kenneth R. . Fisherman 1618-1629 131. Clements, Robert B. do. 1630-1634 132. Hoogerwaard, Simon do. 1636-1636

On81ow 133. Cooper, Arthur W. F. .Master of Lighter" Ashburton .. 1637-1666

Point Saimon 134. Miller, William A. .... Fisherman ... 1667-1677 l35. Williams, John J. .... Lumper and Fisherman 1678-1680 1M. Vitenberge, Johana .... . Fisherman 1681-1683 131. Vltenbergs, 'Gwendoline P.. Housewife 1084-1686 138. Beeton, Larue E. A. Home Duties 1686-1687

Esperance 139. Scott, Hugh (recalled) Bank Manager 1688-1701 1711 140. Gorrett, Francis C. Licensed Plumber 1702-1710 141. Cameron, John F. Clerk 1712-1717 14,2. Black, Geoffroy C. .;... Branch Manager 1718-1721 143. Mackenzie, Donald H. A. Fisherman 1722-1730 144. Lance, Frederick J. Storemen 1731-1735

Fremantle 145. 'Iumer, Stacey C...... Pclnolpal, Technical School .... 1756-1765 140. Robson, Capt. Reginald V. Lecturer, Education Department 1706-1769 147. 'Miragliotta, Frank -FiBll'i:irman 1770-1786 2066-2061 148. Mitagliotta, Carl .... do. 1786-1805 149. Humphries, Gordon Q. "Business Manager 1814-1828 150. Randell, Leonard A. 1iawl Architect ... 1836-1856 151. Plggford, Duncan P. (Captain) Harbour Pilot 1857-1870

Perlh 152. Nielson, William A. E. Assistant Director General (Telecommunications) 1871-1894 P.M:.G. 163. Fraser, Alex J. Director and Chief Inspector Fisheries 1896-1901 164. Ienello, Francesco Fisherman 1906-1917 166. Amm, Leslie H. V. do. 1918-1945 166. Bradley, William Cetpenter 1967-1969 167. Davies, William A. M. Business Manager 1970-1972 Gerald/on 158. Grill, John William Fishermen 1973-1979 159. Horsman, James E. do. 1980-1988 100. :Ma'siello, Angelo do. 1989-1997 161. Crooks, Ronald B. do. 1998-2012 182. Lemmon, Christopher R. do. 2018-2029 163. Fitzhardinge .Inr., John B. do. 2030-2040 164. Gilbertson, Alex S. do. 2041-2043 165. Hover, Calvin W. Fisherman and Diver 2044-2048

P-tfth 166. Henry, Norman d. Civil Engineer P.W.D. 2049-2055 16'7, Ryan, Kenneth F. Manufacturer .... . 2062-2056 lOS. Liggins, Charles S. Insurance Broker 2067-2083 169. Jones, Robert F. Insurance Manager 2084-2087 no. .Becher,Michael H. Q. Insurance Claims Manager 2088-2093 171, .Dry, Barry P. Insurance Broker 2094-2097 1'12. Raines, William C. n. Civil Servent-c-Secretery 2122-2124 63

APPENDIX It B '.' LIST OF EXHIBITS Page Place Exhibit No. Exhibit 199 Dongere I Police Circular Orders and General Instructions. 204 do. 2 Aerial Photographs lA to SA. 301 Leneelln I Fisheries Newsletter of May, 1964, page 9. 373 MBndurah I Sketch showing reefs. 373 do. 2 Press cutting headed" Boats worth £8,000 pile up in sudden N.W. Blow," dat-ed 23rd February, 1964. 374 do. 3 Sketch showing skiing areas. 374 do. 4 Two aerial photographs showing respectively the Channel closed and the Channel open. 678 Walpolo I Rules for safety on the water issued by the Harbour and Light De­ partment in conjunction with the Yachting Association of W.A. 808 Frementle I Pamphlets describing the Beaufort Inflatable Life Raft.. 812 do. 2 Photographs of Fairway Polyurethane with fibre glass coating aid to buoyancy life raft. 833 do. 3 Fisheries Newsletter, Vol. 23, No.5, May, 1964. 893 do. 4 Cruising handbook and almanac of the Pilot House. 963 do. 5 Report on evaluation of 25 person capacity life rafts. 965 do. 6 Report on trial drop survival equipment. 965 do. 7 Morning Seminar. 974 Perth I Visibility distances of A.S.B-. signalling. 10~2 do. 2 Aerial photograph of floating objects. 3 No exhibit, 4 No exhibit. 5 No exhibit. 1074 do. 6 Report on fishing boat casualties on \V.A. ooaet, 1129 do. 7 Freshwater Bay Yacht Club, "The 1963 Bunbuey." 1176 do. 8 Handbook entitled" For Your Safety." 1177 do. 9 Leaflet of the Association and also some of the Do's and Don'ts of " Water Skiing. 1250 do. 10 Boat Building Pamphlet, 1251 do. II Plan of "Tide Song BaaL" 1252 do. 12 Hartley's Guide to Boat Building. 1291 do. 13 Certificates of Approval. 14 Certificates of Approval. 1460 do. I World Fishing, July, 1961. 1703 Esperance I Cardboard lettering showing size of registration number. 1704 do. 2 Sample of Distress Flag. 1758 Fremantle 8 Tho Marine Act. 1758 do. 9 Elementary Seamanship and Nautical Knowledge. 1758 do. 10 Syllabus. 1758 do. II Tide Tables. 1758 do. 12 Deviation Card. 1758 do. 13 Lecture notes suitable to students. 1758 do. 14 Extract from Harbour Trust Act relating to various signals. 1758 do. 15 A type of chart prepared with the help of Technical Expansion Service. 1758 do. 16 Copy of annual examination in coastal navigation and nautical know- ledge. 1875 Perth 15 Brochure R.B. 36 setting out conditions governing licensing and opera­ tion of voluntarily fitted ship stations. 1875 do. 16 Sketch map showing the location of the limited coast stations operated for the fishing industry and also coast stations of the O.T.e. com­ munications. 1877 do. 17 Brochure R.B. 36 setting out tho conditions of licensing and operation of ships stations restricted to inter-communications between vessels. 1877 Perth 18 Brochure R.B. 36 relating to the licensing and operation of limited Coast Stations and associated Ship Stations. 1879 do. 19, 20, 21 Copies of guide cards for operations of small vessels licensed to work O.T.C. Coast Stations. 1879 do. 22 Rand book for guidance of operators of Stations. 1896 do. 23 Table of fish and crayfish production excluding white crayfish. 1902 do. 24 Chart No. 1033, Champion Bay to Cape Naturaliste, including Swan River. 1902 do. 25 Chart No. 1056, Cape Cuvler to Champion Bay. no2 do. 26 Scale of charges adjustment of compasses for all U.K. Ports. 1970 do. 27 " West Australian" newspaper, 7th November, 1963. 1972 do. 28 Plan of condenser unit. 1980 Gereldton 2 Petition from Port Gregory fishermen concerning the closing of the crayfish season. 2122 Perth 29 Equipment. for demonstration, Friday, 27th August. to 2124 do. 30 Correspondence and sample of " Floats Plan" from America. do. 31 '" The Western Australian Crayfishery, 1944-1961" by Dr. Keith Sheard. do. 32 Correspondence and copy of proceedings at Dongere public meeting regarding loss of v Cnthy Jo ". do. 33 Correspondence regarding size of boats, written by E. ill. Wilson and forwarded by Editor, West Australian. do. 3~ Coneepondence from Minister for Works regarding a submission by Mr. A. J. Gibson. do. 35 A letter handed in by Mrv Forsyth from S. Nielsen, South Perth. do. 36 Correspondence and advertising sent in by P. M. Products. do. 37 Report on fishing boat casualties by W. G. Davies and letter of authority from Mrs. S. Davies to use the report. do. 38 Letter from Cridland, Bauer and Rorrison, Solicitors, Darwin, with submissions from Mr. Michele Lombardo of the vessels I. Nelma " and "Carmela". 64

APPENDIX U B "-amtinued LIST OF EXHIBITS-continued Page Place Exhibit No. Exhibit 2122 Perth 39 A Book of Constitution of the Company of Master Mariners of Aust. to (1960). 2124 do. 40 Correspondence and advertising matter from Tropical Traders regard­ ing "Ship to Shore Radios". do. 41 Correspondence and photos of life saving equipment need in demon­ stration 7/8/64. do. 42 Newspaper cuttings March 26th to August 26th, 1964. do. 43 File containing correspondence and statistical data from Department of Primary Industry, Canberra, in reference to Export of Marine Products, and copies of newsletters. do. 44 File containing correspondence from private enterprise, institutions, taxation authorities and Government Departments regarding installations appertaining to the fishing industry in \V.A. do. 45 Extract' from Traffic Act, Section 46A, .regerding Special Permit's, handed in by Chief Inspector Napier. do. 46 Letter from Mrs. B. Harper, Mt, Yokine, regarding boat safety and radio communications. do. 47 Pamphlet from the Australian Standards Association of Australia Reinforced Plastics-Boats, A.S.F. 3~1962. . do. 48 Copy of Newsletter, July 1964, from A. L. Grigg, Walpole. do. 49 Copy of American Magazine" Yachting" August 1960. do. 50 Letter from Genex Pty. Ltd. enclosing cutting from Financial Review. do. 51 Aerial photograph Freruantle Harbour. do. 52 Sample Polyurethane. do. 53 Sample Poleethyrene. do. 54 'V.A. Ineurence Co. forms. do. 55 Edward Lumley & Sons proposal form. do. 56 Search and Rescue Launch, Cocos (photos.). do. 57 State Government Insurance Office, letter and eubmlestona and brochures. do. 58 Memo from P.M. Products, Fairway "Mirror, marker dye and adver­ tising matter. do. 59 Letter from Rock Lobster/Crayfish Industry Development Assoc. of Australia regarding insurance.

APPENDIX Hen FIG. 2 WEs·rERN AUSTRALIA WHITE ORAYFISH PRODUOTION

1961 1962 1963 I I Block No. No. Approx. No. No. Weight Weight Approx. Weight Approx. Boats Value Boats Value Boats Val.,. I I I I I ..I I I lb. £ lb. £ lb. £ 18 ...... 159 I 26 ... 19 ...... 280 I 49 87 I 15 25 ...... 303 2 53 1,722 I 301 26 .... 41,634 II 7,807 4,737 4 829 4,209 5 737 29 .... 268,939 48 50,876 215,993 39 37,799 358,503 49 63,738 36 ...... 1,414,143 II5 285,859 1,223,260 147 214,071 1,649,430 163 288,650 38 ...... 398,523 39 74,922 406,743 56 71,189 239,005 28 41,826 39 ...... 1,173,153 60 220,553 1,233,966 95 215,944 1,405,570 96· 245,975 44 .. 1,665,839 135 313,068 2,413,952 175 422,443 2,922,417 240 511,422 45 .... 1,360,852 190 252,537 1,1l4,109 168 194,969 1,049,416 147 183,648 49 ...... 26,437 2 4,970 12,507 5 2,189 23,242 4 4,067 50 ...... 21,174 4 3,981 32,474 6 5,683 17,530 4 3,068 Totals .... 6,370,694 613 1,194,573 6,658,474 699 1,165,235 7,671,131 738 1,343,447 I I I I I I I .. APPENDIX"C," Fig. 3

~ WESTERN AUSTRALIA T FISH AND CRAYFISH PRODUCTION-EXCLUDING" WHITE CRAYFISH" ~ 1961 1962 1963 e0 ---~- -- Approx. Approx. Approx, Approx. No. Approx. Approx. No. No. Block Crayfish Value of Crayfish OtherFish Valuo of Value of Block No. Crayfish Other Fish Value of Value of No. Other Fish Value of Block No. Boats Boats Boats Crayfish Other Fish Crayfish Other Fish Crayfish Other Fish lb. lb. £ £ lb. lb. £ £ lb. lb. £ £ 5 265,708 6 .... 17,802 5 .... 481,416 4 .... 32,255 5 165,588 4 .... 11,756 6 .... 951,511 33 .... 51,851 6 .... 1,164,853 23 .... 78,045 6 1,426,925 2.5 101,312 7 .... 12,306 3 .... 825 7 .... 13,205 2 .... 885 7 58,117 3 4,126 12 .... "" ...... 12 .... 3,057 1 205 12 1.328 2 94 13 .... S,I09 2 .... 543 13 .... 460 1 32 13 1,363 1 .... 97 13A .... 453 I .... 30 1M .... 4,199 2 281 1M .... 6,861 2 487 14 .... 2,312 2 .... 155 14 .... 6,406 1 429 14 2,188 3 154 14A .... 128 I .... 9 14A .... 1,305 1 .... 87 14A .... 1,466 1 104 15 .... 547,882 7 .... 36,698 15 .... 890,431 7 .... 59,659 15 .... 628,806 7 .... 44,645 16 .... 1,628,433 13 .... 109,105 16 .... 2,985,916 9 200,056 16 .... 1,506,457 12 .... 107,038 17 .... 87,698 7 .... 5,876 17 .... 370,266 8 24,808 17 .... 190,173 10 13,502 18 23,284 2 1,560 18 41,292 4 2,766 18 211,223 2 14,807 19 7,302 155,183 7 1,373 10,397 19 15,580 149,770 5 2,727 10,035 19 12,704 80,231 6 2,223 5,696 25 64,153 6 4,298 25 40 112,418 5 7 7,532 25 1,256 76,618 {, 220 5,430 26 23,305 559,360 24 4,381 37,477 26 118,219 779,174 20 20,688 52,203 26 66,158 609,378 26 11,578 43,266 27 .... 277,774 15 .... 18,611 27 .... 458,214 13 30,700 27 .... 266,952 13 .... 18,954 28 1,239,114 55 83,021 28 1,252,292 45 83,903 28 1,013,039 55 71,926 29 360,084 548,973 26 67,696 36,781 29 389,558 549,940 39 68,172 36,846 29 285,601 4:31,361 42 49,980 32,047 30 .... 7,431 2 .... 498 30 .... 30 '" 35 467 I 31 35 1,360 4 91 35 36 2,018,416 196,584 118 379,462 13,171 36 2,332,796 159,575 118 408,239 10,692 36 3,122,762 303,789 137 546,883 21,569 37 443,279 28 29,700 37 292,591 27 19,603 37 454,009 28 32,235 38 775,476 39,836 33 145,788 2,669 38 967,338 55,741 48 169,274 3,735 38 844,766 37,567 65 147,834 2,667 39 1,470,064 42,385 50 276,372 2,840 39 1,233,043 18,128 71 215,783 1,215 39 1,613,417 34,481 87 282,348 2,448 44 1,859,240 10,704 46 349,537 717 44 1,538,963 11,631 46 269,319 779 44 2,795,884 69,872 158 489,282 4,251 45 1,225,991 37,644 44 220,486 2,822 45 1,171,191 25,301 49 204,958 1,695 45 1,212,536 26,555 140 212,195 1,885 46 3,950,548 144,869 164 742,706 9,706 46 4,378,849 69,576 190 766,299 4,662 46 3,447,671 57,476 219 603,342 4,081 49 498,435 1,860 11 93,706 125 49 201,859 1,810 5 35,325 121 49 67,750 8,439 7 11,856 599 50 71,908 7 13,519 50 46,089 1,674 3 8,066 102 60 .58,849 6,144 5 10,298 426 52 158,877 526,007 4 29,869 35,242 52 214,128 401,606 S 37,471 26,908 52 12,234 640,672 13 2,141 45,488 53 .... 53 335,279 11 .... 22,514 53 .... 321 I 23 54 53,958 334,697 5 10,134 22,415 54 1,689 125,725 3 295 8,424 54 101,596 3 7,213 55 37,700 811,032 15 7,088 54,339 55 1,208,659 14 1,295 80,980 55 3,499 2,017,210 20 012 143,222 57 .... 745,113 10 .... 49,923 57 7,400 581,357 4 .... 38,952 57 819,111 13 58,157 58 .... 185,864 4 .... 11,453 58 .... 5,714 1 .... 383 58 ...... 60 .... 24,397 2 .... 1,635 60 ...... 60 3,930 I 279 61 .... 1,608 1 .... 108 61 ...... 61 10,331 3 734 63 ...... 63 ...... 63 .... 4,644 I 330 66 .... 41,397 2 .... 2,774 66 .... 1,947 I .... 130 66 .... 244,785 4 .... 17,380 67 ...... 67 .... 267 3 .... 18 67 .... 70 .... 20,422 4 .... 1,378 70 .... 44,831 2 .... 3,004 70 .... 97,8;')5 3 6,848 71 .... 16,089 4 .... 1,078 71 .... 43,370 4 .... 2,906 71 60,022 3 .... 4,262 72 .... 30,984 3 .... 2,076 72 .... 518 1 .... 35 72 .... IS,136 4 .... 1,288

Totals 12,511,304 10,035,050 768 2,342,117 659,739 12,616,742 12,651,274 803 2,207,918 847,676 13,545,087 ll,705,O19 1,134 2,370,792 830,826 66

APPENDIX U D lJ LIST OF DEATHS OF PERSONS EITHER FISHING OR IN BOATS ON PLEASURE CRUISES 28/1/1959-31/5/1964

Name :File Remarks Date

O'Hara, Joseph Gerard; De La 59/865 Fibre glass dinghy overcrowded and capsized on Peel Inlet, 28/1/59 Hunty, Mary Joachim; Lynch, Mandurah Mary Patricia; Tarrant, Mary Fin­ bar Wilkinson, James Leslie 60/85 Dislodged from catamaran yacht, Albany Harbour 4/1/60 White, William Harold 60/2727 14 ft. dinghy with outboard motor overturned in Cockburn 16/6/60 Sound Redman, John Henry 60/3838 Bondwood dinghy overturned near Garden Island 8/8/60 Cardell, Robert Arthur 60/3600 Dinghy swamped by large waves, Port Hedlund 19/9/60 Kenworthy, John weuee 61/1991 Dinghy overturned in Freshwater Bay 15/1/61 Dalton, Geoffrey Allan 61/3620 Scout boat capsized in Swan River 12/8/61 Higgs, Franklyn Graham 61/4919 Dinghy capsized off Naval Base 12/8/61 Cahill, Ronald James. .... 62/2088 Dinghy swamped and Bank off Rottneet Island 21/4/62 Rowe, Victor ,Villiam; Moore, James 63/7654 Dinghy swamped in Windy Harbour .... 22/9/63 Gilbert Watson, Frederick William 63/7733 Daughter fell from speed boat in Swan River, Watson drowned 7/9/63 in rescue attempt Gill, Ranjit Singh ...... ,.. 63/7738 Racing shell swamped in Swan River 12/8/63 Boag, Donald Angus; Hogg; Phillipa 63/7216 Dinghy swamped in Murchison River, Kalbarri 6/2/63 Jean Buesenohutt, Maxwell Conrad 64/7208 Speed boat capsized on fishing trip near Dongare 29/2/64 Hudson, Colin Neil 64/7336 Left Rottnest in rough weather in small boat; body found 2/3/64 near Garden Island Bohling, Ronald 64/7318 Dinghy overturned near Ledge Point 31/5/64 67

APPENDIX fl E."

To the Royal Commission to enquire into Safety of Ships at Sea to which the Marine Act of 194.8-1962 applies.

SECTION 1. The ideal for all craft. which have closed or partially olosed wheelhouses, is to have two full sized compasses fitted into proper binnacles, or one such compass and binnacle with a periscope device to the steering position. The top compass should have a clear view all round the horizon and be fitted with a proper azimuth mirror for taking bearings. Obviously it is impossible to obtain this ideal in Fishing Boats for the following reasons :- 1. Lack of space in such craft.. 2. Cost.

It is therefore necessary to reach some reasonable compromise between the ideal and the practicable which will still allow the compass to be reasonably efficient for its main purposes, namely:- 1. Steering an accurate course. 2. Obtaining bearings from which the vessel's position call be fixed.

SECTION 2. So that a compass can be brought up to a reasonable degree of efficiency, by proper compass adjustment, the following are the minimum requirement-s :- (a) The compass should be in good condition (the liquid clear, free from debris and bubbles, the markings on the card easy to read, the magnet system free of pivot friction and the gimballa free). (b) It should be of reasonable size. (c) 'I'here should be proper places in which the magnets can be fixed. (d) There should be soft iron con-ectal'S if needed for the craft involved. (e) The compass, from which at least most of the horizon should be visible, to be fitted with an azimuth mirror. An aux{Uary bearing device, such as a hand bearing compass or pelarue to be provided if this section can't be complied with. (f) The compass to be so sited that it will not be unduly interfered with by any varying magnetic or electrical influence. (g) There must be a reasonable assurance that the deviation will, under normal circumstances, be fairly steady between compass adjustments. Such compass adjustments should he dono after every re-fit and at intervals of not. more than twelve months.

SECTION 3. As a reasonable compromise and still fulfill the minimum requirements enumerated above I respectfully suggest the fo11ow­ ing:- Ref. Sect. II (b) The minimum compass size should be related to the craft's length. e.g. 4 in. for craft under 40 ft. 5 in. for craft between 40 n.-60 ft. 6 in. for craft over 60 ft.

Ref. Sect. II (0) Where there is no Compass Binnacle there should be :­ (a) Either:- (i) A horizontal wooden platform at least 6 in. wide extending a minimum of 18 in. on each side of the compass in the athwartship line and one such platform in the fore and aft line either forward 01' abaft the compass, or (ii) the compass to be fitted on a wooden box at least 15 in. deep. (b) The fore and aft and athwertehip lines through the centre of the compass should be plainly marked on such platforms or boxes. (0) Directly undor the compass should be a 1 in. thick piece of wood with holes for taking Vertical Magnets or some other suitable device for correcting Vertical Force. Ref. Sect. II (d) (a) Soft iron correctors must be fitted in all steel craft and in all craft where the quadrantal deviation is appreci­ able (i.e. 2"). (b) When such soft iron correctors are needed the compass should either :­ (i) be in a proper binnacle, or {ii) on a box such as mentioned in Ref. Sect. 11 (a) {ii} with, in addition, the atbwartship platform mentioned in (a) (i) for the soft iron correctors.

Ref. Sed. 11 (e) All craft over 30 Ft.in length should have SOlUe means of taking bearings either directly from the compass (which is preferable), by hand bearing compass Or pelorus. 'Vhen such hand bearing compass be used it must be used in a position as clear of magnetic and electrical influence as possible and from the same position for each series of bearings. The option of a hand bearing compass should not be extended to steel craft as deviation varies so greatly with the slightest movement in position.

Ref. Sed. 11 (I) (i) The compass should be in the centre line for all steel craft and as near the centre line as is practicable in all other craft, (il) No moving ferrous material should be allowed near the compass [i.e. Steering wheels, gear levers, throttles, etc.). (iii) Electrical equipment should be at a safe distance from the compass. Firms supplying such equipment should supply not only the distance at which the effect of such equipment on the compass is negligible (this is normally done) but the distance at which the effect is small {i.e. F). Then as a compromise due to the lack of space in such craft such equipment should be fitted not closer to the compass than the distance at which the effect is small. (Iv) Magnetic Automatic Pilot Compasses should be subject to such regulations as are applicable to them. 68

Ref. Sect. 11 (y) To obtain a good compass adjustment it is best to usc large magnets at large distance-s, hut such magnets would induce magnetism in any ferrous material close to them and over a period of time would produce sub-permanent magnetism in such material. This would make the compass adjustment useless. The previous recommendations have been made with the idea that small low powered magnet-s comparatively close to the compass would 00 used. This would decrease the possibility of ferrous material in the vicinity of the compass being magnetised by the adjusting magnets. Even then to obtain a reasonably steady adjustment it is essential that there should be no ferrous material :­ (i) between the magnets and compass, (ii) within 18 in. of the compass, (iii) too close to the magnets.

lL'{ CONCLUSION I would like to make the following suggestions :- (i) Before a craft is built a plan of the Wheelhouse should be submitted to the Department of Harbour and Light. Such plan should clearly indicato the size, type and position of the compass, all ferrous material and electrical equip­ ment. Details for all electrical equipment should be supplied as required by Section III Ref Sect. 11 (1) (ill). No construction to start until the plan has been passed and a check to be made after construction to see that the plan has been complied with. It would be too expensive to alter craft already built to comply fully with Section 111 Ref. Sect. 11 (f) and (g) and some compromise would be necessary. (ii) To police the regulations a Surveyor 'with a Compass Adjuster's License should be appointed to the staff of the Department of Harbour and Light. This person to operate 011 the same basis as the Ministry of Shipping and Trans. port Surveyors :-namely that they do not compete with private Compass Adjusters but are available to do compass adjustment when no private Compass Adjuster is available. 'There will be more than sufficient work for such a Staff Surveyor with policing the regulations, Outport Compass Adjustment, which is not possible either for economic or business reasons for private Compass Adjusters to carry out, over-flow of compass adjustment in the busy season without taking into account the extra survey work which will be called for by any new regulations that come into force or the tightening up and policing of present regulations. (iii) (a) The examination syllabus be enlarged to include for all grades of certificate the obtaining of compass deviation by at least amplitudes and transits. (b) Although there should he llO examination in the subject every candidate for a certificate should have at least one hours practicalinstruction in the care and maintenance of compasses, the effect of ferrous material on the com­ pass and the taking of bearings by hand bearing compass and pelorus. 'This instruction to be given by the Compass Adjuster-Surveyor previously mentioned or by some qualified person, preferably a Compass Adjuster, approved by the Department of Harbour and Light. 69

APPENDIX U F U

SCHEDULE OF IV.A. COASTAL LIGHTS AND PROPOSALS

Dist• Dist. . . ence ance Candle He}ght from from Pri· Recommendations Position Range In Power Feet estab- previ- ority lished ous light point

W.A./S.A. Border Miles Miles Miles Termination Island 15 6,000 100 450 C Establish Figure of 8 Island 33 Already approved Hood Point .... 26 6,000 390 105 C Establish Breeksea Island 25 1,000 . 390 85 • Eclipse Island 27 1,160,000 400 10 10 • Irwin. Point...... 20 6,000 230 47 47 B Establish D'Entrecasteeux 22 6,000 360 100 53 A Increase power Cape Leeuwin 20 784,000 185 51 51 • Hamelin Island 16 150,000 116 12 12 • Cape' Naturaliste 29 . 1..213,000 404 41 41 • Bunbury .... 17 1,000 142 34 34 • Cape Bouverd 18 6,000 150 40 40 B Establish Rottnest Island 23 3,000,000 264 96 40 A Install DF Bathuret. Potnt 15 5,000 98 • Ledge Point 20 6,000 185 35 35 A Establish Escape Island 15 6,000 105 105 70 A Increase range and power Beagle Island 12 '1,000 55 32 32 B Establish for FV and Coastal Point Moore 16 320,000 110 95 63 B Install DF South Abrolhos 15 1,000 100 A Establish for FV and Coastal North Abrolhos 15 6,000 100 50 A Establish for Coast and FV Shoal Point 25 6,000 386 50 50 A Improve daytime visibility S.\V. Edeland . 20 3,000 200 100 100 C Establish Steep Point . 16 1,400 224 130 30 • Cape Inscription 17 6,000' 127 43 43 C Increase power x 2 . Cape St. Cricq 17 6,000 130 12 12 B Establish to assist Navigation within Shark Bay Cape Roneard 11 500 71 45 33 • Quobba' Point 21 13,000 210 25 25 C Install DF Beacon Red Bluff ... 20 6,000 200 30 30 C Estahlish Fraser Island .. 15 6,000 97 113 83 • North·"West Cape (Vlam. 22 320,000 240 56 56 A Install DF Beacon ing) Monte Bello Islands .... 17 12,000 125 120 120 B Establish (To cover Tryall Rocks) South Murion Estuary Suitable site for light .... C Establish (For Ships to Point :Murat Jetty) Anchor Island .... 15 1,600 86 40 (from N.W. • Cape) Airlie Island Mary Anne Roof Ig }:~gg ~g :g .; I ;eing Reconstructed, 1964 'Great Sandy Island .... 8 150 54 10 . Steamboat Island Has been suggested as Intermediate light between Mary passage and Begendre 30 I .... I B 1 Malur Island ... A suitable site for approach light to King Bay area if development takes place. 40 Ii·..· I Delambre Island A suitable site for additional approach light to Point Samson if developed Legendre Island 116 14 I :;i: I 1 82 i·..· I B\ Increase Power Jarman Island 15 3,000 97 28 ...... • Cape Thouin .. A possible site for a powerful coastal ght if Hedlend becomes deepwater port Spinifex Hill . 10 I .... I 80 1 100 I .... I .... I • Point Cooke .. May be better position for Spinifex light if Hedland develops Bedout Island 13 800 66 140 53 B Increase power Mount Blaze .... 9 3005215 . Cape Boseut 14 ... 75 135 • Gantheume Head .... 16 2,000 103 53 53..... Enhance Point 9 .... 100...... * Lacepede Island 18 6,000 150 63 63 A Estahlish (approved) Red Bluff .... 16 2,000 100 ...... B Establish (approved) Cape Leveque 18 85,000 142 116 53 A Install DF Cafferelli .... 21 6,000 230 30 30 A Establish for Derby Appr. Sunday Island (Hunt Island) ...... 16 2,000 100 20 21 A Establish for Derby Appr. Adele Island...... 16 2,000 100 55 A Increase power x 3 6,000 Install Auto DF Cockatoo Island 28 1,000 428 43 A Change from Occasional to Permanent Browse Island 10 38 85 A Increase power x 2 Install Auto DE Degeeendo Island 17 6/}OO 120 60 (from Cockatoo) * Maret Island 18 6,000 140 70 I 70 I A Estahlish (Approvsd) Troughton Island 16 30,000 105 160 90..... Penguin Shoal Should be marked if at aU possible but difficult problem Leseur Island 50 I I.... • Lacrosse Island 25 6,000 370 100 .... * Cape Fourcroy 205 (from Lacrosse) Increase power and range 250 (from 'I'roughton]

* Already installed. 70

APPENDIX " G IJ In reply to your letters dated 12th August, 1964 and Iat September, 1964,.8 summary of the taxation concessions granted to the fishing industry is set out hereunder.

SALES TAX 2. Persons engaged in the fishing industry are entitled to exemption from Sales Tax in respect of goods covered by Items 20A and 119 to the Firat Schedule of the Sales Tax (Exemptions and Classifications) Act. A copy of each of these Items is attached. 3. The exemptions so provided embrace such goods as lifebuoys, life jackets, life- boat and life raft equipment-for example, water tanks, hand Hares, red flare lights, smoke signals and search light-s. 4. Goods excluded from the exemptions are those in the nature of furniture or those associated with what may be t-ermed he domestic aspects of operating a vessel-cleaning materials and equipment, cooking utensils, etc.

mCQDIE TAX 6. The Income Tax and Social Services Contribution Aesesement Aot provides that­ «fishing operations" means- (a) operations relating directly to the taking or catching of fish, turtles, dugong, crustacea. or oysters or other shell. fish; or (b) pearling operations; and includes oyster farming, but does not include whaling and also does not include operations conduoted otherwise than for the purposes of a business'. 6. The special income tax concessions available to a taxpayer deriving income from fishing operations are :- (I) in the calculation of the tax payable, such a taxpayer, other than a company, is subject to the" average" provisions. In brief, tax is assessed on his taxable income for the year, but at the rate applicable to the average of his taxable income oyer the prescribed period (generally, five years). When his income is increasing, his average income is less than his taxable income and so the provisions operate to his advantage by reducing the rate of tax t-o be imposed. If, however, because of a downward trend in his income, the provisions would operate to his disadvantage, he may elect not to have them applied. Such an election, when made, is irrevocable; once having elected to be assessed without reference to average, a taxpayer cannot reverse his choice in some subsequent year. Where the taxable income or the average income exceeds £4,000, the averaging provisions have only limited appli­ cation. (ii) Plant and equipment used wholly and exclusively for fishing operations may be written off over five years instead of at the normal rate of depreciation. This accelerated depreciation rete applies in respect of plant and equipment first used or installed ready for use after 30th June, 1958 and before 1st July, 1967. It does not apply t-o mot-or vehicles designed primarily and principally for the transport of pereone-ce.g, motor cars, station sedans. (iii) Structural improvements (e.g. workshops, jetties, slipways, and within limits, accommodation for employees) com. pleted after 30th June, 1958 and before 30th June, 1967 (or 30th June, 1968 in some circumstances) used wholly and exclusively for pearling operations, and situated at or in the vicinity of a port or harbour from which the peerling operations are conducted, may be written off over five years. This concession extends only t-o the peerling seotlou of the industry; it does not embrace structural improvements for the purposes of other fishing operations. (iv) A deduction may be allowable for twenty per cent. of tho cost of new (not second-hand) plant acquired after 14th August, 1963. The deduction, where it is applicable, is additional to depreciation, and is allowed in the first year in which the plant is used, or is installed ready for use, for the purpose of producing assessable income. Various items are expressly excluded-for example, structural improvements, road vehieles of the kinds ordinarily used for trans­ porting persons or goods, office equipment, household equipment wireless receivers and transmitters, television re­ ceivers and antennae, containers for delivery purposes, cooking appliances, miscellaneous equipment(anchors, buoys, chains, lines, nets, sails, etc.), hand implements and hand tools .

* • • • 20A-(I) Equipment and materials for use in the fishing industry, namely:- (a) Boats (including life-boats), oars, sails, life-belts and similar accessories ; (b) Crayfish pots; (0) Engines; (d) Nets and netting for fishing,and cotton, hemp twine and other materials for the repair of such nets and netting; (0) Lines, hooks, floats and sinkers; (f) Refrigeration equipment and refrigerating agents- (i) for use exclusively or primarily and principally by a person engaged in the fishing industry in the preservation of fish or other marine animals produced by him; (ii) for use exclusively or primarily and principally by an authority constituted under a State Act, being an Act relating to the marketing of fish, in the preservation of fish or other marine animals j or (iii) for usc exclusively or primarily and principally by a co-operative company or society in the preserve­ tion of fish 01' other marine animals produced and supplied to the company or society by members of the company or society engaged in the fishing industry. (2) Parts for equipment covered by sub-Item (1) of this item.

• *** 119-(1) Ships and other vessels, but not including those to be used exclusively or principally for purposes of pleasure, sport or recreation either by the owner thereof-or by auy other person or persons. (2) Equipment (being machines, implements or apparatus) for use on ships or other vessels covered by the last preceding sub-item, but not including- (a) goods covered by an item ill the Third Schedule to this Act; (b) goods for use in, or in connexion with, the preparation or consumption of foodstuffs or beverages; (0) goods for use for tho comfort" entertainment or recreation of the crew or passengers; or (d) equipment for use for cleaning or polishing or of a kind ordinarily used for domeetio purposes. (3) Parts for goods covered by Sub-item (1) or (2) of this item. (4) Materials for use in the construction or repair of, so as to form part of, goods covered by this item.

By Authority, ALEX. 8. DAVIES, Government Prlnhw'