Unfortunately the naval records of the early years of the seventeenth century have almost entirely disappeared from the State archives; the "State Papers" themselves are but fragmentary remains; and the English Privy Council Registers from 1602 to 1613 were destroyed by the fire at Whitehall in 1618, so that it is impossible to say what were the points of contention referred to in the Proclamation.
The birth of the flag that is now the pride of so many millions was indeed obscure. Intended at first for use only at sea, it appears to have excited no attention except from those directly concerned with shipping. The royal and merchant navies were alike dwindling away, and the sea did not fill that place in the minds of James' subjects that it had filled in the greater days of Elizabeth.
The only strictly contemporary evidence of the actual design chosen in 1606 is to be found in the following appeal from the shipmasters of Scotland, whom it did not by any means please.
Edinburgh
7 Aug. 1606
Most sacred Soverayne. A greate nomber of the maisteris and awnaris of the schippis of this your Majesteis kingdome hes verie havelie compleint to your Majesteis Counsell that the form and patrone of the flaggis of schippis, send doun heir and commandit to be ressavit and used be the subjectis of boith kingdomes, is very prejudiciall to the fredome and dignitie of this Estate and will gif occasioun of reprotche to this natioun quhairevir the said flage sal happin to be worne beyond sea becaus, as your sacred Majestie may persave, the Scottis Croce, callit Sanctandrois Croce is twyse divydit, and the Inglishe Croce, callit Sanct George, haldin haill and drawne through the Scottis Croce, whiche is thairby obscurit and no takin nor merk to be seene of the Scottis Armes. This will breid some heit and miscontentment betwix your Majesteis subjectis, and it is to be feirit that some inconvenientis sall fall oute betwix thame, for oure seyfairing men cannot be induceit to ressave that flag as it is set doun. They haif drawne two new drauchtis and patronis as most indifferent for boith kingdomes which they presented to the Counsell, and craved our approbatioun of the same; bot we haif reserved that to your Majesteis princelie determination,—as moir particularlie the Erll of Mar, who wes present and hard thair complaynt, and to whome we haif remittit the discourse and delyverie of that mater, will inform your Majestie, and latt Your Heynes see the errour of the first patrone and the indifferencie of the two new drauchtis. And sua, most humelie beseiking your Majestie, as your Heynes has evir had a speciall regaird of the honnour, fredome and libertie of this your Heynes antient and native kingdome that it wuld pleis your sacres Majestie in this particulair to gif unto your Heynes subjectis some satisfactioun and contentment, we pray God to blisse your sacred Majestie with a lang and prosperous reignne and eternall felicitie[144].
There is nothing to show that this appeal met with any response, but the Scots never took kindly to the new flag and rarely used it until after the Legislative Union of 1707. Sir Edward Nicholas in 1634 was doubtful "whether the Scots have used to carry that Flag of the Union."
It is unfortunate that these "drafts and patterns" have disappeared, perhaps in the same fire that consumed the "form" made by the heralds. There is no doubt about the main outline, but the absence of precise detail has led several writers—purists in heraldic matters—to contend that the white border of the red cross was simply a narrow fimbriation[145]. I think, however, that examination of the available evidence will show that this border did not originate as a mere "fimbriation," that it was in fact part of the field of the English flag, and that the new flag was, as described by Sir James Balfour[146], "the flagis of St Andrew and St George interlaced," not merely the red cross surmounting the Scots flag. Material proof that it was so regarded sixty years later is in existence in Amsterdam in the shape of actual flags captured during the Second and Third Dutch Wars, and belonging therefore to the second half of the seventeenth century. These show a very wide border to the red cross, and in two instances[147] the red cross, the white border and the white saltire are each of the same width.
The heralds had been faced by a dilemma. It was impossible to combine the two flags so as to form a new one without giving precedence to one of them. If quartered, the upper canton next the staff was the place of honour, and both could not occupy it at the same time. In the reign of James II this difficulty was solved, in the case of the Royal Arms, by placing the Scots' Lion in the first quarter in the Great Seal of Scotland. Possibly a similar solution was suggested by the Scottish shipmasters. But there was a precedent for a closer union than this quartered form, which no doubt the heralds had in mind. Elizabeth had granted the Levant Company, by her charters of 1581 and 1592, the right to wear as a flag "the Armes of England with the redde crosse in white over the same[148]." We may be quite sure that in consenting to such an arrangement Elizabeth had no thought of giving the national flag precedence over the royal standard, but merely wished to signify their intimate union and the extension of the royal protection to the company. The method adopted in 1606 was exactly the same, the "red cross in white" being placed over the Scots flag.
The quarterly arrangement of the crosses appears to have been used on one occasion; the dispatch of a fleet in 1623 to bring back Prince Charles and the Duke of Buckingham from Spain. Mr Serjeant Knight, in a "discourse" on the St George's flag written in 1678 at the request of Pepys[149], stated that he had in his possession the Order from the Great Wardrobe directed to his father, Mr Thomas Knight, Arms Painter, who was to paint the banners and streamers required for the Prince. The principal flag was to be that shown in [Plate V], fig. 1: "Imprimis in ye Prince's ship wherein he goes, on ye top ye Crosses of St. Andrew and St. George." Mr Knight assured Pepys that he could not be mistaken about this "cobled Banner," as he scornfully called it, "ye severall arms being trickt in ye margin of ye Order," and he proceeded to give a sketch of it. Indeed, he was disposed to believe this to be the original form of the Union flag: