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was looked upon, as the sea still so often is, as a fit place for those who were ungovernable or useless at home. The military administration, however, so long as it remains a colony, is the proper and necessary attribute of the home government.

      The fact of England's unique and wonderful success as a great colonizing nation is too evident to be dwelt upon; and the reason for it appears to lie chiefly in two traits of the national character. The English colonist naturally and readily settles down in his new country, identifies his interest with it, and though keeping an affectionate remembrance of the home from which he came, has no restless eagerness to return. In the second place, the Englishman at once and instinctively seeks to develop the resources of the new country in the broadest sense. In the former particular he differs from the French, who were ever longingly looking back to the delights of their pleasant land; in the latter, from the Spaniards, whose range of interest and ambition was too narrow for the full evolution of the possibilities of a new country.

      The character and the necessities of the Dutch led them naturally to plant colonies; and by the year 1650 they had in the East Indies, in Africa, and in America a large number, only to name which would be tedious. They were then far ahead of England in this matter. But though the origin of these colonies, purely commercial in its character, was natural, there seems to have been lacking to them a principle of growth. "In planting them they never sought an extension of empire, but merely an acquisition of trade and commerce. They attempted conquest only when forced by the pressure of circumstances. Generally they were content to trade under the protection of the sovereign of the country." This placid satisfaction with gain alone, unaccompanied by political ambition, tended, like the despotism of France and Spain, to keep the colonies mere commercial dependencies upon the mother-country, and so killed the natural principle of growth.

      Before quitting this head of the inquiry, it is well to ask how far the national character of Americans is fitted to develop a great sea power, should other circumstances become favorable.

      It seems scarcely necessary, however, to do more than appeal to a not very distant past to prove that, if legislative hindrances be removed, and more remunerative fields of enterprise filled up, the sea power will not long delay its appearance. The instinct for commerce, bold enterprise in the pursuit of gain, and a keen scent for the trails that lead to it, all exist; and if there be in the future any fields calling for colonization, it cannot be doubted that Americans will carry to them all their inherited aptitude for self-government and independent growth.

      VI. Character of the Government.—In discussing the effects upon the development of a nation's sea power exerted by its government and institutions, it will be necessary to avoid a tendency to over-philosophizing, to confine attention to obvious and immediate causes and their plain results, without prying too far beneath the surface for remote and ultimate influences.

      Nevertheless, it must be noted that particular forms of government with their accompanying institutions, and the character of rulers at one time or another, have exercised a very marked influence upon the development of sea power. The various traits of a country and its people which have so far been considered constitute the natural characteristics with which a nation, like a man, begins its career; the conduct of the government in turn corresponds to the exercise of the intelligent will-power, which, according as it is wise, energetic and persevering, or the reverse, causes success or failure in a man's life or a nation's history.

      It would seem probable that a government in full accord with the natural bias of its people would most successfully advance its growth in every respect; and, in the matter of sea power, the most brilliant successes have followed where there has been intelligent direction by a government fully imbued with the spirit of the people and conscious of its true general bent. Such a government is most certainly secured when the will of the people, or of their best natural exponents, has some large share in making it; but such free governments have sometimes fallen short, while on the other hand despotic power, wielded with judgment and consistency, has created at times a great sea commerce and a brilliant navy with greater directness than can be reached by the slower processes of a free people. The difficulty in the latter case is to insure perseverance after the death of a particular despot.

      England having undoubtedly reached the greatest height of sea power of any modern nation, the action of her government first claims attention. In general direction this action has been consistent, though often far from praiseworthy. It has aimed steadily at the control of the sea. One of its most arrogant expressions dates back as far as the reign of James I., when she had scarce any possessions outside her own islands; before Virginia or Massachusetts was settled. Here is Richelieu's account of it:—

      "The Duke of Sully, minister of Henry IV. [one of the most chivalrous princes that ever lived], having embarked at Calais in a French ship wearing the French flag at the main, was no sooner in the Channel than, meeting an English despatch-boat which was there to receive him, the commander of the latter ordered the French ship to lower her flag. The Duke, considering that his quality freed him from such an affront, boldly refused; but this refusal was followed by three cannon-shot, which, piercing his ship, pierced the heart likewise of all good Frenchmen. Might forced him to yield what right forbade, and for all the complaints he made he could get no better reply from the English captain than this: 'That just as his duty obliged him to honor the ambassador's rank, it also obliged him to exact the honor due to the flag of his master as sovereign of the sea.' If the words of King James himself were more polite, they nevertheless had no other effect than to compel the Duke to take counsel of his prudence, feigning to be satisfied, while his wound was all the time smarting and incurable. Henry the Great had to practise moderation on this occasion; but with the resolve another time to sustain the rights of his crown by the force that, with the aid of time, he should be able to put upon the sea."

      This act of unpardonable insolence, according to modern ideas, was not so much out of accord with the spirit of nations in that day. It is chiefly noteworthy as the most striking, as well as one of the earliest indications of the purpose of England to assert herself at all risks upon the sea; and the insult was offered under one of her most timid kings to an ambassador immediately representing the bravest and ablest of French sovereigns. This empty honor of the flag, a claim insignificant except as the outward manifestation of the purpose of a government, was as rigidly exacted under Cromwell as under the kings. It was one of the conditions of peace yielded by the Dutch after their disastrous war of 1654. Cromwell, a despot in everything but name, was keenly alive to all that concerned England's honor and strength, and did not stop at barren salutes to promote them. Hardly yet possessed of power, the English navy sprang rapidly into a new life and vigor under his stern rule. England's rights, or reparation for her wrongs, were demanded by her fleets throughout the world,—in the Baltic, in the Mediterranean, against the Barbary States, in the West Indies; and under him the conquest of Jamaica began that extension of her empire, by force of arms, which has gone on to our own days. Nor were equally strong peaceful measures for the growth of English trade and shipping forgotten. Cromwell's celebrated Navigation Act declared that all imports into England or her colonies must be conveyed exclusively in vessels belonging to England herself, or to the country in which the products carried were grown or manufactured. This decree, aimed specially at the Dutch, the common carriers of Europe, was resented throughout the commercial world; but the benefit to England, in those days of national strife and animosity, was so apparent that it lasted long under the monarchy. A century and a quarter later we find Nelson, before his famous career had begun, showing his zeal for the welfare of England's shipping by enforcing this same act in the West Indies against American merchant-ships. When Cromwell was dead, and Charles II. sat on the throne of his father, this king, false to the English people, was yet true to England's greatness and to the traditional policy of her government on the sea. In his treacherous intrigues with Louis XIV., by which he aimed to make himself independent of Parliament and people, he wrote to Louis: "There are two impediments to a perfect union. The first is the great care France is now taking to create a commerce and to be an imposing maritime power. This is so great a cause of suspicion with us, who can possess importance only by our commerce and our naval force, that every step which France takes in this direction will perpetuate the jealousy between the two nations." In the midst of the negotiations which preceded the detestable attack of the two kings upon the Dutch republic, a warm dispute arose as to who should command the united fleets of France and England.

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