In 1852, various recommendations made were carried into effect by a bill brought in by Mr. Frederick Peel; and, in 1855, the whole law was consolidated and greatly improved by the Passengers Act of that year. In fact, it cannot be denied that whatever improvements had taken place through the operation of the laws of 1849 and 1852, the passengers on board emigrant ships were still, as a rule, great sufferers. The United States Legislatures bear convincing testimony on this point, as, on the 6th January, 1854, that of the State of New York passed a series of resolutions, calling the attention of Congress to the great and increasing mortality on board vessels engaged in the business of carrying emigrants _during the previous twelve months_, bringing forward undoubted evidence that such suffering and death resulted from insufficient ventilation, &c. The Senate, agreeing with the prayer of these resolutions, concurred, also, in the propriety of inquiry and further legislation. All intelligent, independent parties admitted, indeed, the expediency of concerting an effective system of co-operation between the two governments, so as to prevent an infraction of the regulations mutually agreed upon. [Sidenote: Evidence as to iron cargoes.] In conformity with the evidence adduced, frequent disasters to emigrant vessels were ascribed to the effects produced by cargoes of iron; while the inconsiderate manner in which some owners, charterers, or brokers, even against the remonstrances of the commanders and officers, persisted in thus loading their vessels, was alleged to be a fruitful source of disaster.[154] It is likely that the mortality at sea was increased by such cargoes, as they made the ship labour heavily, causing her at the same time to ship a great quantity of water, with the further probability of producing leaks. The people, too, had then to work at the pumps, were hard fagged and badly fed. But the owners or charterers for a time resisted Government intervention, asserting that the Legislature ought not to fetter mercantile enterprise; and, further, that, if ships were restricted as to cargo, the price of the passage must be raised. On the other hand, it was proposed to give a larger discretionary power to the Emigration officer, so as to prevent improper and dangerous stowage. The insufficiency of existing measures of precautions for the preservation of health; the dietaries, the quality of the ships taken up for passengers, the runners, lodging, detention, &c., of emigrants, all became subjects of consideration, and, especially, the number of boats necessary to be carried. [Sidenote: Various attempts at improvement.]