Sea-Power and Other Studies

by Sir Cyprian Bridge

In the meantime the state which had a leading share in winning the victory of Lepanto had been growing up in the West. Before the union of its crown with that of Castile and the formation of the Spanish monarchy, Aragon had been expanding till it reached the sea. It was united with Catalonia in the twelfth century, and it conquered Valencia in the thirteenth. Its long line of coast opened the way to an extensive and flourishing commerce; and an enterprising navy indemnified the nation for the scantiness of its territory at home by the important foreign conquests of Sardinia, Sicily, Naples, and the Balearic Isles. Amongst the maritime states of the Mediterranean Catalonia had been conspicuous. She was to the Iberian Peninsula much what Phoenicia had been to Syria. The Catalan navy had disputed the empire of the Mediterranean with the fleets of Pisa and Genoa. The incorporation of Catalonia with Aragon added greatly to the strength of that kingdom. The Aragonese kings were wise enough to understand and liberal enough to foster the maritime interests of their new possessions.[35] Their French and Italian neighbours were to feel, before long, the effect of this policy; and when the Spanish monarchy had been consolidated, it was felt not only by them, but by others also. The more Spanish dominion was extended in Italy, the more were the naval resources at the command of Spain augmented. Genoa became 'Spain's water-gate to Italy…. Henceforth the Spanish crown found in the Dorias its admirals; their squadron was permanently hired to the kings of Spain.' Spanish supremacy at sea was established at the expense of France.[36] The acquisition of a vast domain in the New World had greatly developed the maritime activity of Castile, and Spain was as formidable on the ocean as in the Mediterranean. After Portugal had been annexed the naval vessels of that country were added to the Spanish, and the great port of Lisbon became available as a place of equipment and as an additional base of operations for oceanic campaigns. The fusion of Spain and Portugal, says Seeley, 'produced a single state of unlimited maritime dominion…. Henceforth the whole New World belonged exclusively to Spain.' The story of the tremendous catastrophe—the defeat of the Armada—by which the decline of this dominion was heralded is well known. It is memorable, not only because of the harm it did to Spain, but also because it revealed the rise of another claimant to maritime pre-eminence—the English nation. The effects of the catastrophe were not at once visible. Spain still continued to look like the greatest power in the world; and, though the English seamen were seen to be something better than adventurous pirates—a character suggested by some of their recent exploits—few could have comprehended that they were engaged in building up what was to be a sea-power greater than any known to history.

[Footnote 35: Prescott, _Ferdinand_and_Isabella_, Introd. sects. i. ii.]

[Footnote 36: G. W. Prothero, in M. Hume's Spain, 1479-1788, p. 65.]

They were carrying forward, not beginning the building of this. 'England,' says Sir J. K. Laughton, 'had always believed in her naval power, had always claimed the sovereignty of the Narrow Seas; and more than two hundred years before Elizabeth came to the throne, Edward III had testified to his sense of its importance by ordering a gold coinage bearing a device showing the armed strength and sovereignty of England based on the sea.'[37] It is impossible to make intelligible the course of the many wars which the English waged with the French in the Middle Ages unless the true naval position of the former is rightly appreciated. Why were Crecy, Poitiers, Agincourt—not to mention other combats—fought, not on English, but on continental soil? Why during the so-called 'Hundred Years' War' was England in reality the invader and not the invaded? We of the present generation are at last aware of the significance of naval defence, and know that, if properly utilised, it is the best security against invasion that a sea-surrounded state can enjoy. It is not, however, commonly remembered that the same condition of security existed and was properly valued in mediæval times. The battle of Sluys in 1340 rendered invasion of England as impracticable as did that of La Hogue in 1692, that of Quiberon Bay in 1759, and that of Trafalgar in 1805; and it permitted, as did those battles, the transport of troops to the continent to support our allies in wars which, had we not been strong at sea, would have been waged on the soil of our own country. Our early continental wars, therefore, are proofs of the long-established efficiency of our naval defences. Notwithstanding the greater attention paid, within the last dozen years or so, to naval affairs, it is doubtful if the country generally even yet recognises the extent to which its security depends upon a good fleet as fully as our ancestors did nearly seven centuries ago. The narrative of our pre-Elizabethan campaigns is interesting merely as a story; and, when told—as for instance D. Hannay has told it in the introductory chapters of his 'Short History of the Royal Navy'—it will be found instructive and worthy of careful study at the present day. Each of the principal events in our early naval campaigns may be taken as an illustration of the idea conveyed by the term 'sea-power,' and of the accuracy with which its meaning was apprehended at the time. To take a very early case, we may cite the defeat of Eustace the Monk by Hubert de Burgh in 1217. Reinforcements and supplies had been collected at Calais for conveyance to the army of Prince Louis of France and the rebel barons who had been defeated at Lincoln. The reinforcements tried to cross the Channel under the escort of a fleet commanded by Eustace. Hubert de Burgh, who had stoutly held Dover for King John, and was faithful to the young Henry III, heard of the enemy's movements. 'If these people land,' said he, 'England is lost; let us therefore boldly meet them.' He reasoned in almost the same words as Raleigh about four centuries afterwards, and undoubtedly 'had grasped the true principles of the defence of England.' He put to sea and defeated his opponent. The fleet on which Prince Louis and the rebellious barons had counted was destroyed; and with it their enterprise. 'No more admirably planned, no more fruitful battle has been fought by Englishmen on water.'[38] As introductory to a long series of naval operations undertaken with a like object, it has deserved detailed mention here.

[Footnote 37: Armada, Introd. (Navy Records Society).]

[Footnote 38: Hannay, p. 7.]

The sixteenth century was marked by a decided advance in both the development and the application of sea-power. Previously its operation had been confined to the Mediterranean or to coast waters outside it. Spanish or Basque seamen—by their proceedings in the English Channel—had proved the practicability of, rather than been engaged in, ocean warfare. The English, who withstood them, were accustomed to seas so rough, to seasons so uncertain, and to weather so boisterous, that the ocean had few terrors for them. All that was wanting was a sufficient inducement to seek distant fields of action and a development of the naval art that would permit them to be reached. The discovery of the New World supplied the first; the consequently increased length of voyages and of absence from the coast led to the second. The world had been moving onwards in other things as well as in navigation. Intercommunication was becoming more and more frequent. What was done by one people was soon known to others. It is a mistake to suppose that, because the English had been behindhand in the exploration of remote regions, they were wanting in maritime enterprise. The career of the Cabots would of itself suffice to render such a supposition doubtful. The English had two good reasons for postponing voyages to and settlement in far-off lands. They had their hands full nearer home; and they thoroughly, and as it were by instinct, understood the conditions on which permanent expansion must rest. They wanted to make sure of the line of communication first. To effect this a sea-going marine of both war and commerce and, for further expansion, stations on the way were essential. The chart of the world furnishes evidence of the wisdom and the thoroughness of their procedure. Taught by the experience of the Spaniards and the Portuguese, when unimpeded by the political circumstances of the time, and provided with suitable equipment, the English displayed their energy in distant seas. It now became simply a question of the efficiency of sea-power. If this was not a quality of that of the English, then their efforts were bound to fail; and, more than this, the position of their country, challenging as it did what was believed to be the greatest of maritime states, would have been altogether precarious. The principal expeditions now undertaken were distinguished by a characteristic peculiar to the people, and not to be found in connection with the exploring or colonising activity of most other great nations even down to our own time. They were really unofficial speculations in which, if the Government took part at all, it was for the sake of the profit expected and almost, if not exactly, like any private adventurer. The participation of the Government, nevertheless, had an aspect which it is worth while to note. It conveyed a hint—and quite consciously—to all whom it might concern that the speculations were 'under-written' by the whole sea-power of England. The forces of more than one state had been used to protect its maritime trade from the assaults of enemies in the Mediterranean or in the Narrow Seas. They had been used to ward off invasion and to keep open communications across not very extensive areas of water. In the sixteenth century they were first relied upon to support distant commerce, whether carried on in a peaceful fashion or under aggressive forms. This, naturally enough, led to collisions. The contention waxed hot, and was virtually decided when the Armada shaped course to the northward after the fight off Gravelines.

The expeditions against the Spanish Indies and, still more, those against Philip II's peninsular territory, had helped to define the limitations of sea-power. It became evident, and it was made still more evident in the next century, that for a great country to be strong it must not rely upon a navy alone. It must also have an adequate and properly organised mobile army. Notwithstanding the number of times that this lesson has been repeated, we have been slow to learn it. It is doubtful if we have learned it even yet. English seamen in all ages seem to have mastered it fully; for they have always demanded—at any rate for upwards of three centuries—that expeditions against foreign territory over-sea should be accompanied by a proper number of land-troops. On the other hand, the necessity of organising the army of a maritime insular state, and of training it with the object of rendering effective aid in operations of the kind in question, has rarely been perceived and acted upon by others. The result has been a long series of inglorious or disastrous affairs like the West Indies voyage of 1595-96, the Cadiz expedition of 1625, and that to the Ile de Ré of 1627. Additions might be made to the list. The failures of joint expeditions have often been explained by alleging differences or quarrels between the naval and the military commanders. This way of explaining them, however, is nothing but the inveterate critical method of the streets by which cause is taken for effect and effect for cause. The differences and quarrels arose, no doubt; but they generally sprang out of the recriminations consequent on, not producing, the want of success. Another manifestation of the way in which sea-power works was first observed in the seventeenth century. It suggested the adoption of, and furnished the instrument for carrying out a distinct maritime policy. What was practically a standing navy had come into existence. As regards England this phenomenon was now of respectable age. Long voyages and cruises of several ships in company had been frequent during the latter half of the sixteenth century and the early part of the seventeenth. Even the grandfathers of the men who sailed with Blake and Penn in 1652 could not have known a time when ships had never crossed the ocean, and squadrons kept together for months had never cruised. However imperfect it may have been, a system of provisioning ships and supplying them with stores, and of preserving discipline amongst their crews, had been developed, and had proved fairly satisfactory. The Parliament and the Protector in turn found it necessary to keep a considerable number of ships in commission, and make them cruise and operate in company. It was not till well on in the reign of Queen Victoria that the man-of-war's man was finally differentiated from the merchant seaman; but two centuries before some of the distinctive marks of the former had already begun to be noticeable. There were seamen in the time of the Commonwealth who rarely, perhaps some who never, served afloat except in a man-of-war. Some of the interesting naval families which were settled at Portsmouth and the eastern ports, and which—from father to son—helped to recruit the ranks of our bluejackets till a date later than that of the launch of the first ironclad, could carry back their professional genealogy to at least the days of Charles II, when, in all probability, it did not first start. Though landsmen continued even after the civil war to be given naval appointments, and though a permanent corps, through the ranks of which everyone must pass, had not been formally established, a body of real naval officers—men who could handle their ships, supervise the working of the armament, and exercise military command—had been formed. A navy, accordingly, was now a weapon of undoubted keenness, capable of very effective use by anyone who knew how to wield it. Having tasted the sweets of intercourse with the Indies, whether in the occupation of Portugal or of Spain, both English and Dutch were desirous of getting a larger share of them. English maritime commerce had increased and needed naval protection. If England was to maintain the international position to which, as no one denied, she was entitled, that commerce must be permitted to expand. The minds of men in western Europe, moreover, were set upon obtaining for their country territories in the New World, the amenities of which were now known. From the reign of James I the Dutch had shown great jealousy of English maritime enterprise. Where it was possible, as in the East Indian Archipelago, they had destroyed it. Their naval resources were great enough to let them hold English shipping at their mercy, unless a vigorous effort were made to protect it. The Dutch conducted the carrying trade of a great part of the world, and the monopoly of this they were resolved to keep, while the English were resolved to share in it. The exclusion of the English from every trade-route, except such as ran by their own coast or crossed the Narrow Seas, seemed a by no means impossible contingency. There seemed also to be but one way of preventing it, viz. by war. The supposed unfriendliness of the Dutch, or at least of an important party amongst them, to the regicide Government in England helped to force the conflict. The Navigation Act of 1651 was passed and regarded as a covert declaration of hostilities. So the first Dutch war began. It established our claim to compete for the position of a great maritime commercial power.

The rise of the sea-power of the Dutch, and the magnitude which it attained in a short time and in the most adverse circumstances, have no parallel in history. The case of Athens was different, because the Athenian power had not so much been unconsciously developed out of a great maritime trade, as based on a military marine deliberately and persistently fostered during many years. Thirlwall believes that it was Solon who 'laid the foundations of the Attic navy,'[39] a century before Salamis. The great achievement of Themistocles was to convince his fellow-citizens that their navy ought to be increased. Perhaps the nearest parallel with the power of the Dutch was presented by that of Rhodes, which rested largely on a carrying trade. The Rhodian undertakings, however, were by comparison small and restricted in extent. Motley declares of the Seven United Provinces that they 'commanded the ocean,'[40] and that it would be difficult to exaggerate the naval power of the young Commonwealth. Even in the days of Spain's greatness English seamen positively declined to admit that she was stronger than England on the sea; and the story of the Armada justified their view. Our first two Dutch wars were, therefore, contests between the two foremost naval states of the world for what was primarily a maritime object. The identity of the cause of the first and of the second war will be discerned by anyone who compares what has been said about the circumstances leading to the former, with Monk's remark as to the latter. He said that the English wanted a larger share of the trade enjoyed by the Dutch. It was quite in accordance with the spirit of the age that the Dutch should try to prevent, by force, this want from being satisfied. Anything like free and open competition was repugnant to the general feeling. The high road to both individual wealth and national prosperity was believed to lie in securing a monopoly. Merchants or manufacturers who called for the abolition of monopolies granted to particular courtiers and favourites had not the smallest intention, on gaining their object, of throwing open to the enterprise of all what had been monopolised. It was to be kept for the exclusive benefit of some privileged or chartered company. It was the same in greater affairs. As Mahan says, 'To secure to one's own people a disproportionate share of the benefits of sea commerce every effort was made to exclude others, either by the peaceful legislative methods of monopoly or prohibitory regulations, or, when these failed, by direct violence.' The apparent wealth of Spain was believed to be due to the rigorous manner in which foreigners were excluded from trading with the Spanish over-sea territories. The skill and enterprise of the Dutch having enabled them to force themselves into this trade, they were determined to keep it to themselves. The Dutch East India Company was a powerful body, and largely dictated the maritime policy of the country. We have thus come to an interesting point in the historical consideration of sea-power. The Elizabethan conflict with Spain had practically settled the question whether or not the expanding nations were to be allowed to extend their activities to territories in the New World. The first two Dutch wars were to settle the question whether or not the ocean trade of the world was to be open to any people qualified to engage in it. We can see how largely these were maritime questions, how much depended on the solution found for them, and how plain it was that they must be settled by naval means.

[Footnote 39: _Hist.Greece, ii. p. 52.]