On the 8th of July the "Amphion" joined the fleet off Toulon. It numbered then nine ships-of-the-line, with three smaller cruisers. "As far as outside show goes," he reported to St. Vincent, "the ships look very well; but they complain of their bottoms, and are very short of men." The fact was, as he afterwards explained, that before the war came they had been expecting every day to go to England, and consequently had been allowed to run down gradually, a result which doubtless had been hastened by St. Vincent's stringent economies. Gibraltar and Malta were both bare, Nelson wrote six months later, and it was not the fault of the naval storekeepers. The ships, everywhere, were "distressed for almost every article. They have entirely eat up their stores, and their real wants not half complied with. I have applications from the different line-of-battle-ships for surveys on most of their sails and running rigging, which cannot be complied with, as there is neither cordage nor sails to replace the unserviceable stores, and, therefore, the evil must be combated in the best manner possible." As the whole Navy had suffered from the same cause, there was no reserve of ships at home to replace those in the Mediterranean, which, besides lacking everything, were between eight and nine hundred men short of their complement, or about one hundred for each ship-of-the-line. "We can send you neither ships nor men," wrote St. Vincent as winter drew on; and even a year later, the administration which followed his found it impossible to replace the "crazy" vessels, of which Nelson said only four were fit for winter cruising. "It is not a storeship a week," he declared, "that would keep them in repair." The trouble was greater because, when leaving Malta, they had anticipated only a cruise of three weeks, which for many of them became two years.
Despite the difficulties, he determined that the fleet as a body should not go into port; nor should the individual ships-of-the-line, except when absolutely necessary, and then to Gibraltar, not Malta. "I have made up my mind never to go into port till after the battle, if they make me wait a year, provided the Admiralty change the ships who cannot keep the sea in winter;" nor did the failure of the Admiralty to meet this proviso alter his resolution. It was the carrying out of this decision, with ships in such condition, in a region where winds and seas were of exceptional violence, and supplies of food and water most difficult to be obtained, because surrounded in all directions by countries either directly hostile, or under the overmastering influence of Bonaparte, that made the exercise of Nelson's command during this period a triumph of naval administration and prevision. It does not necessarily follow that an officer of distinguished ability for handling a force in the face of an enemy, will possess also the faculty which foresees and provides for the many contingencies, upon which depend the constant efficiency and readiness of a great organized body; though both qualities are doubtless essential to constitute a great general officer. For twenty-two months Nelson's fleet never went into a port, other than an open roadstead on a neutral coast, destitute of supplies; at the end of that time, when the need arose to pursue an enemy for four thousand miles, it was found massed, and in all respects perfectly prepared for so distant and sudden a call. To quote his own words, written a year before this summons in reply to an intimation from the Admiralty to be on his guard against Spain, "I have the pleasure to acquaint you that the squadron under my command is all collected, except the Gibraltar,[60] complete in their provisions and stores to near five months, and in a perfect state of readiness to act as the exigency of the moment may determine." "With the resources of your mind," wrote St. Vincent, when unable to reinforce him, "you will do very well;" and Nelson, when he put off his harness, might have boasted himself that the prediction was more than fulfilled.
Provisions, water, and supplies of all sorts were brought to the ships on their station, either at sea, or in unfrequented roadsteads within the limits of the cruising ground. "I never could have spared the ships to go to Gibraltar for them," he wrote to St. Vincent, to whom he expressed his satisfaction with the way the plan worked. He soon abandoned, in fact, the method of sending individual ships for water, because of the long absence thus entailed. When water could not be brought in transports, or rather could not easily be transhipped owing to the badness of the season, he thought it better to take the whole fleet to the nearest watering-place than to divide its strength. Fresh provisions, absolutely indispensable to the health of the ships' companies, constituted the greatest of difficulties. Opposition to furnishing them must be expected wherever French influence could be felt. "The great distance from Malta or Gibraltar renders the getting such refreshments from those places, in a regular manner, absolutely impossible;" and from the Spanish ports, Barcelona or Rosas, which were near his cruising ground, they could be had only "clandestinely." Government Bills would not be taken there, nor in Barbary or Sardinia, where bullocks might be got. Hard money must be paid, and about this there was some routine bureau difficulty. "I certainly hate to have anything to do with the management of money," he wrote, "but I submit the propriety of lodging public money on board the fleet, for the purpose of paying for fresh beef and vegetables, provided, but on no account otherwise, that the simple receipt from the captain of the ship may be a sufficient voucher for the disbursement of such money." Absolutely disposed as he was to assume political or military responsibilities, he was not willing, even for the health of the fleet, to incur the risk of pecuniary imputations for himself or his captains.
Great dexterity of management was required to obtain these supplies, without drawing, upon those who gave them, such tokens of displeasure from Bonaparte as might result in their discontinuance. Towards Spain, although he felt for her perplexities, Nelson took a firm tone. She was nominally neutral, and enjoyed privileges as such; he insisted therefore that she should deal equal measure to both belligerents. "I am ready to make large allowances for the miserable situation Spain has placed herself in; but there is a certain line beyond which I cannot submit to be treated with disrespect." That line of forbearance was dictated, of course, less by indulgence towards Spain than by the necessities of Great Britain, which Nelson, however indignant, was too good a diplomatist to drop out of sight; but he kept up a pressure which secured very substantial assistance, though grudgingly given. "Refreshments we have a right to as long as we remain at peace, and if this goes on"—the refusal, that is, to allow provisions to be bought in quantities—"you may acquaint them that I will anchor in Rosas with the squadron, and receive our daily supplies, which will offend the French much more than our staying at sea."
Towards Naples, as secretly friendly to Great Britain, he was of course far more tender; and, while he rejected no suggestion without consideration, he regarded the distance as too great to render such a means of subsistence certain. The numerous privateers that haunted every port would intercept the transports and render convoys necessary; it was not worth while, for so small an advantage, to involve Naples, in its already critical state, in a dispute with France. An occasional purchase, however, seems to have been made there; and even France herself was at times brought to contribute, indirectly, to the support of the squadron which was watching one of her principal ports. "Latterly our cattle and onions have been procured from France," wrote Nelson; "but from the apparent incivilities of the Spaniards, I suppose we are on the eve of being shut out." To escape the notice of the French agents, it was obviously desirable to distribute as widely as possible the sources of supply, so as not to concentrate observation upon any one, or upon the general fact.
It was, however, upon Sardinia that Nelson in the end chiefly depended. The importance of this island, both in fact and in his estimation, was so great, that it may be said to have constituted the chief object of his thought and anxiety, after his own squadron and the French, which also he at times prophetically spoke of as his own. "I do not mean to use the shells you have sent me at sea," he writes to General Villettes, "for that I hope to consider burning our own ships; but in case they run ashore, then a few put into their sides will do their business." In addition to its extremely favorable central position, Sardinia, as compared to Sicily, did not entail the perplexity that its use by the British might cause a friendly sovereign the loss of his continental dominions. Those of the King of Sardinia had passed already nearly, if not wholly, out of his hands. The island itself was so wild, poor, and neglected, that, even if seized by the enemy, the King would lose little. The net revenue derived from it was only £5,000.
Map of Sardinia
During the previous war Nelson's attention had not been called much to Sardinia. Up to the withdrawal from the Mediterranean in 1796, Corsica had been a sufficient, and more suitable, base for the operations of the fleet, which until then had been upon the Riviera and the northern coast of Italy. When he returned in 1798, even after the Battle of the Nile and the disasters of the French in 1799, the unsettled condition of Naples, the blockade of Malta, and the affairs of Egypt, had combined to keep him in the South; while the tenure of the Allies in Northern Italy, up to the Battle of Marengo, was apparently so secure as to require no great support from the fleet. Irrespective of any personal influences that may have swayed him, Sicily was better suited then to be the centre from which to superintend the varied duties of his wide command.