The Life of Nelson, Volume 1 / The Embodiment of the Sea Power of Great Britain

by A. T. Mahan

Here the admiral not only raised, but also decided, the point as to whether the enforcement of the Navigation Act rested with naval officers, or was vested only in the civil authorities of the islands. Nelson was convinced that an essential part of the duty of ships of war, and especially when peace took from them so much of their military function, was to afford to the commerce of the nation proper protection, of which a necessary feature, according to the ideas of the age, was the interdiction of foreign traders. A seaman, he plausibly argued, could decide better than an unprofessional man the questions of injuries and distress upon which the unlawful traffic largely hinged. "In judging of their distress, no person can know better than the sea officers," he wrote to Hughes. "The governors may be imposed upon by false declarations; we, who are on the spot, cannot." He was aware, also, that a petition for relaxing the Act in favor of the American trade with the West Indies had been referred to the home government, by which it had been explicitly rejected. Strengthened by this knowledge, but actuated, after all, chiefly by his invariable resoluteness to assume responsibility where he felt he was right, he replied to the admiral's letter with a clear statement of the facts, concluding with the words: "Whilst I have the honour to command an English man-of-war, I never shall allow myself to be subservient to the will of any Governor, nor coöperate with him in doing illegal acts.... If I rightly understand your order of the 29th of December, it is founded upon an Opinion of the King's Attorney-General, viz.: 'That it is legal for Governors or their representatives to admit foreigners into the ports of their government, if they think fit.' How the King's Attorney-General conceives he has a right to give an illegal opinion, which I assert the above is, he must answer for. I know the Navigation Laws." As he summed up the matter in a letter to his friend Locker: "Sir Richard Hughes was a delicate business. I must either disobey my orders, or disobey Acts of Parliament, which the admiral was disobeying. I determined upon the former, trusting to the uprightness of my intention. In short, I wrote the Admiral that I should decline obeying his orders, till I had an opportunity of seeing and talking to him, at the same time making him an apology."

Hughes's first impulse was to supersede his recalcitrant subordinate, and bring him to trial. He learned, however, that many of the other captains, of whom the court must be formed, shared his junior's views, although they shrank, with the submissiveness of military men, from the decisive act of disobedience. The result of a trial must therefore be doubtful. He was, moreover, a fiddler, as Nelson continually styled him, shifting back and forth, from opinion to opinion, and to be relied upon for only one thing,—to dodge responsibility, if possible. Consequently, no official action was taken; the commander-in-chief contented himself with washing his hands of all accountability. He had given orders which would clear himself, in case Nelson's conduct was censured in England. If, on the contrary, it was approved, it would redound to the credit of the station.

The matter was soon brought to a test. The governors and all the officials, particularly of the Custom House, resented the action of the naval officers; but the vigilance of the latter so seriously interrupted the forbidden traffic under American colors, that recourse was had to giving British registers to the vessels concerned, allowing them to trade under British flags. This, however, was equally contrary to the Navigation Act, which forbade British registry to foreign-built ships, except when prizes taken in war; and the disguise wast too thin to baffle men like Collingwood and Nelson. The latter reported the practice to the home Government, in order that any measures deemed necessary might be taken. Meanwhile he patiently persisted in turning away all vessels, not British built, which he encountered, confining himself for the time to this merely passive prevention; but finding at last that this was not a sufficient deterrent, he gave notice that after the 1st of May, 1785, he would seize all American vessels trading to the islands, "let them be registered by whom they might." Accordingly, on the 2d of May he arrested an American-built schooner, owned in Philadelphia and manned entirely by Americans, but having a British register issued at the island of St. Christopher.

The Crown lawyer was now called upon to prosecute the suit. He expressed grave doubts as to a naval captain's power to act by virtue simply of his commission, the sole authority alleged by the captor; and, although he proceeded with the case, his manner so betrayed his uncertainty that Nelson felt it necessary to plead for himself. To the confusion of all opponents the judge decided in his favor, saying he had an undoubted right to seize vessels transgressing the Navigation Laws. The principle thus established, Nelson on the 23d of the same month, at the island of Nevis, upon the same grounds, seized four vessels,—one of which had been registered at Dominica by Governor Orde, a naval captain senior in rank to himself, and with whom he came into unpleasant contact upon several occasions in his later life.

There was no serious question as to the condemnation of the four last seizures, the facts being clear and the principle settled;[10] but the rage of the inhabitants of Nevis led them to seek revenge upon Nelson for the injury they could no longer prevent. He had summoned the masters of the ships on board the "Boreas," and, after satisfying himself that the vessels were not entitled to British registers, had sent marines to hold them, and to prevent essential witnesses from leaving them, until the cases were tried. Upon these circumstances was based an accusation of assault and imprisonment, the masters swearing that they had made their statements under bodily fear. Writs were issued against Nelson, damages being laid at four thousand pounds, a sum which to him meant ruin. Although he asserted that there was absolutely no truth in the charges, which are certainly in entire contradiction to the general, if not invariable, tenor of his life and conduct, he was advised by the Crown lawyers not to subject himself to trial, as in the state of public feeling he could not expect a fair verdict. To avoid arrest, he was forced to confine himself to the ship for seven weeks, during which the marshal made several attempts to serve the writ, but without success. On the day that the case of the seized ships came up, he was able to be present in court only by the safe conduct of the judge.

Two days after the seizure of the four vessels, Sir Richard Hughes, who was making a tour of the station under his command, arrived at Nevis; but he had no support to give his zealous lieutenant. "He did not appear to be pleased with my conduct," wrote Nelson to Locker. "At least he did not approve it, but told me I should get into a scrape. Seven weeks I was kept a close prisoner to my ship; nor did I ever learn that the admiral took any steps for my release. He did not even acquaint the Admiralty Board how cruelly I had been treated; nor of the attempts which had been made to take me out of my ship by force, and that indignity offered under the fly of his flag." "I had the governor, the Customs, all the planters upon me; subscriptions were soon filled to prosecute; and my admiral stood neuter, although his flag was then in the roads." To this lack of countenance on the part of his superior, and direct persecution by those injuriously affected by his action, there was added a general social ostracism, to which he frequently alludes, and which was particularly emphasized by its contrast with the habits of hospitality prevalent among the small and wealthy planter community. One friend, however, stood by him, and offered to become his bail in the sum of ten thousand pounds,—Mr. Herbert, the President of Nevis, and one of the wealthiest men in the island. He had, Nelson said, suffered more than any one else from the interruption of the trade, but he considered that the young captain had done only his duty. Possibly there may have been a warmer feeling underlying this esteem, for he was the uncle of the lady whom Nelson afterwards married, and to whom he seems to have been paying attention already.

Despite his indomitable pluck and resolve, the confinement, uncertainty, and contention told heavily on Nelson's health and spirits. His temper was too kindly and social not to feel the general alienation. It could not affect his purpose; but the sense of right-doing, which sustained him in that, did not make his road otherwise easier. It is, indeed, especially to be noticed that there was not in him that hard, unyielding fibre, upon which care, or neglect, or anxiety, makes little impression. He was, on the contrary, extremely sympathetic, even emotional; and although insensible to bodily fear, he was by no means so to censure, or to risk of other misfortune. To this susceptibility to worry, strong witness is borne by an expression of his, used at the very time of which we are now writing. One of his friends—Captain Pole of the Navy—had detained and sent in a neutral vessel for breach of belligerent rights. After long legal proceedings, extending over five years, she was condemned, and proved to be a very valuable prize to the captors. "Our friend Charles Pole," he writes, "has been fortunate in his trial; but the lottery is so very much against an officer, that never will I knowingly involve myself in a doubtful cause. Prize-money is doubtless very acceptable; but my mind would have suffered so much, that no pecuniary compensation, at so late a period, would have made me amends." Contrasting this utterance with the resolution shown by him at this time, in fighting what he considered the cause of his country in the West Indies, it can be seen how much stronger with him was the influence of duty than that exercised by any considerations of merely material advantage. In the one he could find support; in the other not. But in neither case was he insensible to care, nor could he escape the physical consequences of anxiety upon a delicate frame and nervous organization. Of this, his harassment in the pursuit of the French fleet in 1798, during Bonaparte's Egyptian expedition, gave a very conspicuous illustration.

With such a temperament, being now very much in the position of an individual fighting a corporation, he appealed to the home Government; addressing, on the 29th of June, 1785, a memorial to the King, setting forth the facts of the case, as already given, adding that his health was much impaired, and asking for assistance. He received a reply to this in the following September, informing him that the King had directed that he should be defended by the Crown lawyers. This implied approval of his course was succeeded, in November, by a letter from the Secretary of the Treasury, through the usual official channels of the Admiralty, acquainting him that the Government was "of opinion that the commander-in-chief of the Leeward Islands, and officers under him, have shown a very commendable zeal, in endeavouring to put a stop to the very illicit practices which were carrying on in the islands, in open violation of the law, and to the great detriment of the navigation and trade of his Majesty's dominions." Verily, Hughes had his reward. Here he was commended in express terms for doing that which he had been too prudent to do, for zeal which he had never shown, for maintaining a law which he had given orders not to maintain. "I own I was surprised," wrote Nelson, "that the commander-in-chief should be thanked for an act which he did not order, but which, if I understand the meaning of words, by his order of the 29th December, 1784, he ordered not to be." "To the end of the station,[11] his order of the 29th of December was never repealed, so that I always acted with a rod over me." How heavily the responsibility he assumed was felt by others, is clearly shown in another statement made by him. "The Captains Collingwood were the only officers, with myself, who ever attempted to hinder the illicit trade with America; and I stood singly with respect to seizing, for the other officers were fearful of being brought into scrapes."

Backed by the royal approval, and with his legal expenses guaranteed, Nelson's course was now smooth. He continued in all parts of the station to suppress the contraband trade, and his unpopularity, of course, also continued; but excitement necessarily subsided as it became clear that submission was unavoidable, and as men adapted themselves to the new conditions. The whole procedure now looks somewhat barbarous and blundering, but in no essential principle differs from the methods of protection to which the world at present seems again tending. It is not for us to throw stones at it. The results, then, were completely successful, judged by the standards of the time. "At this moment," wrote Nelson some few months later, "there are nearly fifty sail employed in the trade between the Islands of St. Kitts, Nevis, and America, which are truly British built, owned, and navigated. Had I been an idle spectator, my firm belief is that not a single vessel would have belonged to those islands in the foreign trade." His own action was further endorsed by the ministry, which now gave captains of ships-of-war much more extensive powers, thereby justifying his contention that it was within their office to enforce the Navigation Act. Nor was this increased activity of the executive branch of the government the only result of Nelson's persistence. His sagacious study of the whole question, under the local conditions of the West Indies, led to his making several suggestions for more surely carrying out the spirit of the Law; and these were embodied the next year in a formal Act of the Legislature.

With so vivid a career as that of Nelson ahead, the delay imposed by this wrangling episode is somewhat dreary; but it undeniably shows his characteristics in the strongest light. Duty, not ease; honor, not gain; the ideal, not the material,—such, not indeed without frailty and blemish, were ever his motives. And, while he craved his reward in the approval and recognition of those around and above him, he could find consolation for the lack of them in his own sense of right-doing. "That thing called Honour," he writes to a friend soon after the "Boreas" cruise, "is now, alas! thought of no more. My integrity cannot be mended, I hope; but my fortune, God knows, has grown worse for the service; so much for serving my country. But I have invariably laid down, and followed close, a plan of what ought to be uppermost in the breast of an officer: that it is much better to serve an ungrateful Country than to give up his own fame. Posterity will do him justice; a uniform conduct of honour and integrity seldom fails of bringing a man to the goal of fame at last."