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Bureaucracy in Elizabethan England: The Office of Naval Ordnance as a Case Study

Published online by Cambridge University Press:  11 July 2014

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Extract

Tales of the maritime exploits of Elizabethan captains and favorable accounts of their part in shaping England's history are commonplace. For example, the actions of William Wynter's squadron against a French fleet in the Firth of Forth in 1560 led J. E. Neale to remark that “The Elizabethan navy had done its task in its first enterprise with complete efficiency and no fuss.…” Few can dispute the positive evaluation Neale and other historians have made of the navy as an effective arm of defense and foreign policy. An emphasis on the military and diplomatic role, however, has obscured another important aspect of the Elizabethan navy. William Wynter and other Elizabethan seamen also served the navy, and thus the nation, in capacities which have received less attention than their maritime exploits.

In addition to active duty at sea, Wynter served as Master of Naval Ordnance. Although the activities of a bureaucrat were not as glamorous as those of a fleet commander, the valor of the Elizabethan captains would have been of little consequence if the ships in which they sailed had not been properly equipped. It was essential that some sort of administrative network be operative in order to coordinate the needs of the navy with the sources of supply. If the ships were not well equipped and in good repair, neither courage nor skill would have enabled the Elizabethan navy to complete its enterprises efficiently. One of these indispensable functions, that of providing common but essential materials and services, was performed by the Office of Naval Ordnance.

Type
Research Article
Copyright
Copyright © North American Conference on British Studies 1974

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References

1 Neale, J. E., Queen Elizabeth I (Garden City, N.Y., 1957), p. 95.Google Scholar

2 This department of the Admiralty was also commonly referred to as the Office of the Ordnance for the Ships or the Office of the Ordnance for the Sea Causes.

3 Elton, G. R., The Tudor Revolution in Government (Cambridge, 1953), p. 3.CrossRefGoogle Scholar

4 Davies, C. S. L., “The Administration of the Royal Navy under Henry VIII: The Origins of the Navy Board,” English Historical Review, LXXX (1965):279.CrossRefGoogle Scholar

5 Ibid., 270-1; Oppenheim, M., A History of the Administration of the Royal Navy (London, 1896), pp. 111112Google Scholar; Pollitt, Ronald, “Henry VIII and the Founding of the Admiralty,” a paper given at the Ohio Academy of History, April, 1971.Google Scholar

6 Glasgow, T. Jr., “Maturing of Naval Administration 1556-1564,” Mariner's Mirror, LVI (1970):35.CrossRefGoogle Scholar

7 Ibid., 7; Britain, Great, Public Record Office, Acts of the Privy Council, New Series, V, 1554-1556 (London, 1892), pp. 219220Google Scholar. (Hereafter cited as APC.)

8 Britain, Great, Public Record Office, The Letters and Papers, Foreign and Domestic of the Reign of Henry VIII, XX, pt. 2 (London, 1864)Google Scholar. App. No. 27. (Hereafter cited as LP.)

9 Davies, , “Navy under Henry VIII,” 272–3Google Scholar; LP, v.XXI. pt.1. nos. 650. 718.

10 Britain, Great, Public Record Office, State Papers Domestic, Elizabeth, XV, no.4, f.2Google Scholar. (Hereafter all PRO documents will be cited by PRO call number.)

11 Ibid., f.2.

12 Davies, , “Navy Under Henry VIII,” 276Google Scholar; Clowes, W. L., et al, The Royal Navy: A History from the Earliest Times to the Present, I (London, 1897), p. 434.Google Scholar

13 Johns, A. W., “The Principal Officers of the Navy,” Mariner's Mirror, XIV (1928):43Google Scholar; Woodhouse's salary and allowances are quoted in Wynter's patent: Britain, Great, Public Record Office, Calendar of Patent Rolls, Phillip and Mary, IV (London, 1939), p. 129Google Scholar. (Hereafter cited as CPR.)

14 Glasgow, , “Maturing,” p. 4Google Scholar; Hakluyt, R., The Principall Navigations, Vonages and Discoveries of the English Nation (London, 1589), pp. 85–8Google Scholar. S. T. C. no. 12961.

15 APC, VII. p. 136.

16 CPR, P & M, IV, p. 129.

17 Oppenheim, , Royal Navy, pp. 92–4, 102–3, 113.Google Scholar

18 Ibid. pp. 115-122, 172.

19 PRO, AO 1/1682/1, ff. 5, 12.

20 For the activities of the Navy Board during the period see: Glasgow, , “Maturing,” pp. 1015Google Scholar; Britain, Great, Public Record Office, Calendar of State Papers, Domestic, 1547-1580 (London, 1856), pp. 126, 131, 140Google Scholar. (Hereafter cited as CSP, Dom., 1547-1580.)

21 PRO, E101/64/31, ff. 2-49. The following analysis of the structure, personnel, and purchases of the Office of Naval Ordnance from 1561 to 1563 is taken from this unusual accounts book, unless otherwise cited. Throughout the original accounts there is a problem of precision. The page, quarter, and yearly expenses were totalled by a second hand and are generally inaccurate. The figures which appear in this essay are the corrected totals.

22 CPR, Eliz., II, pp. 63–64, 302–3, 487.Google Scholar

23 The traveling allowances or “riding charges” were authorized only for those days actually spent traveling on naval business. Glasgow, , “Maturing,” 5Google Scholar, reports that these allownaces were often a source of trivial graft because they were commonly collected for every day of the year. This was not the case in the Office of Naval Ordnance.

24 For requests that Wynter account for his artillery and powder and requests for their return see: CSP. Dom., 1547-1580, pp. 126 & 140.

25 PRO, AO 1/1682/2, f. 11.

26 The fiscal year for the accounts of the Office of Naval Ordnance was divided into four quarters: Our Lady, Jan. 1 to Mar. 31; Midsummer, Apr. 1 to June 30; Michelmas, July 1 to Sept. 30; and Christmas, Oct. 1 to Dec. 31.

27 CSP. Dom., 1547-1580, pp. 178 & 183; Oppenheim, , Royal Navy, p. 139Google Scholar; Glasgow, , “Maturing,” p. 17.Google Scholar

28 For a good account of the politics of English intervention see: MacCaffrey, Wallace, The Shaping of the Elizabethan Regime (Princeton, 1968), pp. 124–41.Google Scholar

29 CSP. Dom., 1547-1580, p. 203: In Clowes, , Royal Navy, I: 477Google Scholar, the ships which composed the squadron are listed as the Lion, Hope, Hart, Swallow, and Hare, PRO, E/101/64/31, f. 24. however, listed the ships under Woodhouse's “rule” as the Hope, Lion, Hare, Swallow, Antelope, and Suker.

30 For the sizes of ships in terms of the amount of artillery see: Oppenheim, , Royal Navy, pp. 156–7.Google Scholar

31 CSP, Dom., 15471580, p. 215.Google Scholar

32 Merton, R. K., et al, eds., Reader in Bureaucracy (Glencoe, Ill., 1952), pp. 2122.Google Scholar

33 Aylmer, G. L., The King's Servants: The Civil Service of Charles I (London, 1961), p. 459.Google Scholar

34 Oppenheim, , Royal Navy, p. 158Google Scholar; Glasgow, , “Maturing,” p. 22.Google Scholar