To charge Elizabeth with criminal parsimony because she insisted on every shot being 'registered and accounted for' will be received with ridicule by naval officers. Of course every shot, and for the matter of that every other article expended, has to be accounted for. One of the most important duties of the gunner of a man-of-war is to keep a strict account of the expenditure of all gunnery stores. This was more exactly done under Queen Victoria than it was under Queen Elizabeth. Naval officers are more hostile to 'red tape' than most men, and they may lament the vast amount of bookkeeping that modern auditors and committees of public accounts insist upon, but they are convinced that a reasonable check on expenditure of stores is indispensable to efficient organisation. So far from blaming Elizabeth for demanding this, they believe that both she and Burleigh, her Lord Treasurer, were very much in advance of their age.
Another charge against her is that she defrauded her seamen of their wages. The following is Froude's statement:—
'Want of the relief, which, if they had been paid their wages, they might have provided for themselves had aggravated the tendencies to disease, and a frightful mortality now set in through the entire fleet.' The word 'now' is interesting, Froude having had before him Howard's and Seymour's letters, already quoted, showing that the appearance of the sickness was by no means recent. Elizabeth's illiberality towards her seamen may be judged from the fact that in her reign their pay was certainly increased once and perhaps twice.[78] In 1585 the sailor's pay was raised from 6s. 8d. to 10s. a month. A rise of pay of 50 per cent. all at once is, I venture to say, entirely without parallel in the navy since, and cannot well be called illiberal. The Elizabethan 10s. would be equal to £3 in our present accounts; and, as the naval month at the earlier date was the lunar, a sailor's yearly wages would be equal to £39 now. The year's pay of an A.B., 'non-continuous service,' as Elizabeth's sailors were, is at the present time £24 6s. 8d. It is true that the sailor now can receive additional pay for good-conduct badges, gunnery-training, &c., and also can look forward to that immense boon—a pension—nearly, but thanks to Sir J. Hawkins and Drake's establishment of the 'Chatham Chest,' not quite unknown in the sixteenth century. Compared with the rate of wages ruling on shore, Elizabeth's seamen were paid highly. Mr. Hubert Hall states that for labourers 'the usual rate was 2d. or 3d. a day.' Ploughmen received a shilling a week. In these cases 'board' was also given. The sailor's pay was 5s. a week with board. Even compared with skilled labour on shore the sailor of the Armada epoch was well paid. Thorold Rogers gives, for 1588, the wages, without board, of carpenters and masons at 10d. and 1s. a day. A plumber's wages varied from 10-1/2d. to 1s.; but there is one case of a plumber receiving as much as 1s. 4d., which was probably for a single day.
[Footnote 78: Mr. Halliday Sparling, in the article already referred to (p. 651), says twice; but Mr. Oppenheim seems to think that the first increase was before Elizabeth's accession.]
Delay in the payment of wages was not peculiar to the Elizabethan system. It lasted very much longer, down to our own times in fact. In 1588 the seamen of the fleet were kept without their pay for several months. In the great majority of cases, and most likely in all, the number of these months was less than six. Even within the nineteenth century men-of-war's men had to wait for their pay for years. Commander C. N. Robinson, in his 'British Fleet,'[79] a book that ought to be in every Englishman's library, remarks: 'All through the seventeenth and eighteenth centuries it was the rule not to pay anybody until the end of the commission, and to a certain degree the practice obtained until some fifty years ago.' As to the nineteenth century, Lord Dundonald, speaking in Parliament, may be quoted. He said that of the ships on the East Indies station, the Centurion's men had been unpaid for eleven years; the Rattlesnake's for fourteen; the Fox's for fifteen. The Elizabethan practice compared with this will look almost precipitate instead of dilatory. To draw again on my personal experience, I may say that I have been kept without pay for a longer time than most of the people in Lord Howard's fleet, as, for the first two years that I was at sea, young officers were paid only once in six months; and then never in cash, but always in bills. The reader may be left to imagine what happened when a naval cadet tried to get a bill for some £7 or £8 cashed at a small Spanish-American port.
[Footnote 79: London, 1894.]
A great deal has been made of the strict audit of the accounts of Howard's fleet. The Queen, says Froude, 'would give no orders for money till she had demanded the meaning of every penny that she was charged.' Why she alone should be held up to obloquy for this is not clear. Until a very recent period, well within the last reign, no commanding officer, on a ship being paid off, could receive the residue of his pay, or get any half-pay at all, until his 'accounts had been passed.'[80] The same rule applied to officers in charge of money or stores. It has been made a further charge against Elizabeth that her officers had to meet certain expenditure out of their own pockets. That certainly is not a peculiarity of the sixteenth-century navy. Till less than fifty years ago the captain of a British man-of-war had to provide one of the three chronometers used in the navigation of his ship. Even later than that the articles necessary for cleaning the ship and everything required for decorating her were paid for by the officers, almost invariably by the first lieutenant, or second in command. There must be many officers still serving who have spent sums, considerable in the aggregate, of their own money on public objects. Though pressure in this respect has been much relieved of late, there are doubtless many who do so still. It is, in fact, a traditional practice in the British Navy and is not in the least distinctly Elizabethan.
[Footnote 80: This happened to me in 1904.]
Some acquaintance with present conditions and accurate knowledge of the naval methods prevailing in the great Queen's reign—a knowledge which the publication of the original documents puts within the reach of anyone who really cares to know the truth—will convince the candid inquirer that Elizabeth's administration of the navy compares favourably with that of any of her successors; and that, for it, she deserves the admiration and unalloyed gratitude of the nation.