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Charles was inflexible on this point. "It is the custom of the English," said he, "to command at sea;" and he told the French ambassador plainly that, were he to yield, his subjects would not obey him. In the projected partition of the United Provinces he reserved for England the maritime plunder in positions that controlled the mouths of the rivers Scheldt and Meuse. The navy under Charles preserved for some time the spirit and discipline impressed on it by Cromwell's iron rule; though later it shared in the general decay of
morale which marked this evil reign. Monk, having by a great strategic blunder sent off a fourth of his fleet, found himself in 1666 in presence of a greatly superior Dutch force. Disregarding the odds, he attacked without hesitation, and for three days maintained the fight with honor, though with loss. Such conduct is not war; but in the single eye that looked to England's naval prestige and dictated his action, common as it was to England's people as well as to her government, has lain the secret of final success following many blunders through the centuries. Charles's successor, James II., was himself a seaman, and had commanded in two great sea-fights. When William III. came to the throne, the governments of England and Holland were under one hand, and continued united in one purpose against Louis XIV. until the Peace of Utrecht in 1713; that is, for a quarter of a century. The English government more and more steadily, and with conscious purpose, pushed on the extension of her sea dominion and fostered the growth of her sea power. While as an open enemy she struck at France upon the sea, so as an artful friend, many at least believed, she sapped the power of Holland afloat. The treaty between the two countries provided that of the sea forces Holland should furnish three eighths, England five eighths, or nearly double. Such a provision, coupled with a further one which made Holland keep up an army of 102,000 against England's 40,000, virtually threw the land war on one and the sea war on the other. The tendency, whether designed or not, is evident; and at the peace, while Holland received compensation by land, England obtained, besides commercial privileges in France, Spain, and the Spanish West Indies, the important maritime concessions of Gibraltar and Port Mahon in the Mediterranean; of Newfoundland, Nova Scotia, and Hudson's Bay in North America. The naval power of France and Spain had disappeared; that of Holland thenceforth steadily declined. Posted thus in America, the West Indies, and the Mediterranean, the English government thenceforth moved firmly forward on the path which made of the English kingdom the British Empire. For the twenty-five years following the Peace of Utrecht, peace was the chief aim of the ministers who directed the policy of the two great seaboard nations, France and England; but amid all the fluctuations of continental politics in a most unsettled period, abounding in petty wars and shifty treaties, the eye of England was steadily fixed on the maintenance of her sea power. In the Baltic, her fleets checked the attempts of Peter the Great upon Sweden, and so maintained a balance of power in that sea, from which she drew not only a great trade but the chief part of her naval stores, and which the Czar aimed to make a Russian lake. Denmark endeavored to establish an East India company aided by foreign capital; England and Holland not only forbade their subjects to join it, but threatened Denmark, and thus stopped an enterprise they thought adverse to their sea interests. In the Netherlands, which by the Utrecht Treaty had passed to Austria, a similar East India company, having Ostend for its port, was formed, with the emperor's sanction. This step, meant to restore to the Low Countries the trade lost to them through their natural outlet of the Scheldt, was opposed by the sea powers England and Holland; and their greediness for the monopoly of trade, helped in this instance by France, stifled this company also after a few years of struggling life. In the Mediterranean, the Utrecht settlement was disturbed by the emperor of Austria, England's natural ally in the then existing state of European politics. Backed by England, he, having already Naples, claimed also Sicily in exchange for Sardinia. Spain resisted; and her navy, just beginning to revive under a vigorous minister, Alberoni, was crushed and annihilated by the English fleet off Cape Passaro in 1718; while the following year a French army, at the bidding of England, crossed the Pyrenees and completed the work by destroying the Spanish dock-yards. Thus England, in addition to Gibraltar and Mahon in her own hands, saw Naples and Sicily in those of a friend, while an enemy was struck down. In Spanish America, the limited privileges to English trade, wrung from the necessities of Spain, were abused by an extensive and scarcely disguised smuggling system; and when the exasperated Spanish government gave way to excesses in the mode of suppression, both the minister who counselled peace and the opposition which urged war defended their opinions by alleging the effects of either upon England's sea power and honor. While England's policy thus steadily aimed at widening and strengthening the bases of her sway upon the ocean, the other governments of Europe seemed blind to the dangers to be feared from her sea growth. The miseries resulting from the overweening power of Spain in days long gone by seemed to be forgotten; forgotten also the more recent lesson of the bloody and costly wars provoked by the ambition and exaggerated power of Louis XIV. Under the eyes of the statesmen of Europe there was steadily and visibly being built up a third overwhelming power, destined to be used as selfishly, as aggressively, though not as cruelly, and much more successfully than any that had preceded it. This was the power of the sea, whose workings, because more silent than the clash of arms, are less often noted, though lying clearly enough on the surface. It can scarcely be denied that England's uncontrolled dominion of the seas, during almost the whole period chosen for our subject, was by long odds the chief among the military factors that determined the final issue.
8 So far, however, was this influence from being foreseen after Utrecht, that France for twelve years, moved by personal exigencies of her rulers, sided with England against Spain; and when Fleuri came into power in 1726, though this policy was reversed, the navy of France received no attention, and the only blow at England was the establishment of a Bourbon prince, a natural enemy to her, upon the throne of the two Sicilies in 1736. When war broke out with Spain in 1739, the navy of England was in numbers more than equal to the combined navies of Spain and France; and during the quarter of a century of nearly uninterrupted war that followed, this numerical disproportion increased. In these wars England, at first instinctively, afterward with conscious purpose under a government that recognized her opportunity and the possibilities of her great sea power, rapidly built up that mighty colonial empire whose foundations were already securely laid in the characteristics of her colonists and the strength of her fleets. In strictly European affairs her wealth, the outcome of her sea power, made her play a conspicuous part during the same period. The system of subsidies, which began half a century before in the wars of Marlborough and received its most extensive development half a century later in the Napoleonic wars, maintained the efforts of her allies, which would have been crippled, if not paralyzed, without them. Who can deny that the government which with one hand strengthened its fainting allies on the continent with the life-blood of money, and with the other drove its own enemies off the sea and out of their chief possessions, Canada, Martinique, Guadeloupe, Havana, Manila, gave to its country the foremost rôle in European politics; and who can fail to see that the power which dwelt in that government, with a land narrow in extent and poor in resources, sprang directly from the sea? The policy in which the English government carried on the war is shown by a speech of Pitt, the master-spirit during its course, though he lost office before bringing it to an end. Condemning the Peace of 1763, made by his political opponent, he said: "France is chiefly, if not exclusively, formidable to us as a maritime and commercial power. What we gain in this respect is valuable to us, above all, through the injury to her which results from it. You have left to France the possibility of reviving her navy." Yet England's gains were enormous; her rule in India was assured, and all North America east of the Mississippi in her hands. By this time the onward path of her government was clearly marked out, had assumed the force of a tradition, and was consistently followed. The war of the American Revolution was, it is true, a great mistake, looked at from the point of view of sea power; but the government was led into it insensibly by a series of natural blunders. Putting aside political and constitutional considerations, and looking at the question as purely military or naval, the case was this: The American colonies were large and growing communities at a great distance from England. So long as they remained attached to the mother-country, as they then were enthusiastically, they formed a solid base for her sea power in that part of the world; but their extent and population were too great, when coupled with the distance from England, to afford any hope of holding them by force,
if any powerful nations were willing to help them. This "if," however, involved a notorious probability; the humiliation of France and Spain was so bitter and so recent that they were sure to seek revenge, and it was well known
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