All these changes in the circuits and in the Curia Regis had however another motive. The chief obstacle to Henry’s judicial and legal reforms was the difficulty of getting them administered according to the intention of their author. It was to meet this difficulty that Henry, as a contemporary writer says, “while never changing his mind, was ever changing his ministers.”[870] He had employed men chosen from every available class of society in turn, and none of his experiments had altogether brought him satisfaction. Feudal nobles, court officials, confidential servants and friends, had all alike been tried and, sooner or later, found wanting.[871] There was only one who had never yet failed him in a service of twenty-five years’ duration—Richard de Lucy “the loyal”; but in the summer of 1179 Richard de Lucy, to his master’s great regret, resigned his office of justiciar and retired to end his days a few months later as a brother of an Augustinian house which he had founded at Lesnes in Kent to the honour of S. Thomas of Canterbury.[872] Henry in this extremity fell back once more upon a precedent of his grandfather’s time and determined to place the chief administration, for the moment at least, again in clerical hands. Instead of a single justiciar-bishop, however, he appointed three—the bishops of Winchester, Ely and Norwich;[873] all of whom, under their earlier appellations of Richard of Ilchester, Geoffrey Ridel and John of Oxford, had long ago acquired ample experience and shewn ample capacity for the work of secular administration.[874]

This arrangement was however only provisional. The number of judicial circuits was again raised to four, and to each of the three southern circuits was despatched one of the justiciar-bishops, with a royal clerk and three laymen to act as his subordinate assistants. The fourth circuit, which took in the whole district between the Trent and the Scottish border, was intrusted to six justices, of whom only two were clerks; one of these, Godfrey de Lucy the archdeacon of Richmond, a brother of the late chief justiciar, stood nominally at the head of the commission; but there can be little doubt that its real head was one of his lay colleagues—Ralf de Glanville,[875] the faithful sheriff of Lancashire and castellan of Richmond to whom William the Lion had given up his sword at Alnwick in 1174;[876] and these six were appointed to form the committee for hearing the complaints of the people, apparently in succession to the five who had been selected in the previous year.[877] All four bodies of judges brought up a report of their proceedings to the king at Westminster on August 27,[878] and it seems to have been the most satisfactory which he had yet received. When he went over sea in the following April, he left Ralf de Glanville to represent him in England as chief justiciar.[879] Ralf’s business capacities proved to be at least as great, and his honesty as stainless, as those of his predecessor; and from that time forth the management of the entire legal and judicial administration was left in his hands. Circuits, variously distributed, continued to be made from year to year and for divers purposes by companies of judges, ranging in total numbers from three to twenty-two;[880] while the King’s Court and the Exchequer pursued their work on the lines already laid down, without further interruption, till the end of Henry’s reign.

The last of Henry’s great legal measures, with the exception of a Forest Assize issued in 1184, was an ordinance published in the autumn of 1181 and known as the Assize of Arms. Its object was to define more fully and exactly the military obligations of the people at large in the service of the king and the defence of the country;—in a word, to put once again upon a more definite footing the old institution of the “fyrd,” which was the only effective counterpoise to the military power of the barons, and whose services in 1173 and 1174 had proved it to be well worthy of the royal consideration and encouragement. The Assize of 1181 declared the obligation of bearing arms at the king’s command to be binding upon every free layman in the realm. The character of the arms with which men of various ranks were required to provide themselves was defined according to a graduated scale, from the full equipment of the knight down to the mail-coat, steel-cap and spear of the burgher and the simple freeman.[881] The justices were directed to ascertain, through the “lawful men” of the hundreds and towns, what persons fell under each category, to enroll their names, read out the Assize in their presence, and make them swear to provide themselves with the proper accoutrements before S. Hilary’s day.[882] Every man’s arms were to be carefully kept and used solely for the royal service; they were not to be taken out of the country, or alienated in any way;[883] at their owner’s death they were to pass to his heir;[884] if any man possessed other arms than those required of him by the Assize, he was to dispose of them in such a manner that they might be used in the king’s service;[885] and all this was enforced by a stern threat of corporal punishment upon defaulters.[886]

The freemen who were armed under this Assize had little occasion to use their weapons so long as King Henry lived. Within the four seas of Britain there was almost unbroken peace till the end of his reign. The treaty with Scotland was ratified by the public homage of William the Lion to Henry and his son at York on August 10, 1175;[887] and thenceforth Henry’s sole trouble from that quarter was the necessity of arbitrating between William and his unruly vassals in Galloway,[888] and of advising him in his ecclesiastical difficulties with the Roman see. The western border of England was less secure than the northern; yet even in Wales the authority of the English Crown had made a considerable advance since Henry’s accession. His first Welsh war, directed against the princes of North Wales in 1157, had little practical result. A second expedition marched in 1163 against Rees Ap-Griffith, prince of South Wales, and a lucky incident at the outset insured its success. Directly in the king’s line of march from Shrewsbury into South Wales, between Wenlock and Newport, there ran a streamlet called Pencarn—a mountain-torrent passable only at certain points. One of these was an ancient ford concerning which a prophecy attributed to the enchanter Merlin declared: “When ye shall see a strong man with a freckled face rush in upon the Britons, if he cross the ford of Pencarn, then know ye that the might of Cambria shall perish.” The Welsh guarded this ford with the utmost care to prevent Henry from crossing it; he, ignorant of the prophecy, sent his troops over by another passage, and was about to follow them himself, when a loud blast from their trumpets on the opposite bank caused his horse to rear so violently that he was obliged to turn away and seek a means of crossing elsewhere. He found it at the fatal spot, and as the Welsh saw him dash through the stream their hearts sank in despair.[889] He marched unopposed from one end of South Wales to the other, through Glamorgan and Carmarthen as far as Pencader;[890] here Rees made his submission;[891] and Rees himself, Owen of North Wales, and several other Welsh princes appeared and swore allegiance to King Henry and his heir in that famous council of Woodstock where the first quarrel arose between Henry and Thomas of Canterbury.[892]