The Rise and Fall of the Great Powers. Paul Kennedy
expedients: the sale of religious properties at low rates, the seizure of the estates of nobles on trumped-up charges, repeated forced loans, the great debasement of the coinage, and finally the recourse to the Fuggers and other foreign bankers.65 Settling England’s differences with France in 1550 was thus a welcome relief to a near-bankrupt government.
What this all indicated, therefore, was the very real limits upon England’s power in the first half of the sixteenth century. It was a centralized and relatively homogeneous state, although much less so in the border areas and in Ireland, which could always distract royal resources and attention. Thanks chiefly to the interest of Henry VIII, it was defensively strong, with some modern forts, artillery, dockyards, a considerable armaments industry, and a well-equipped navy. But it was militarily backward in the quality of its army, and its finances could not fund a large-scale war. When Elizabeth I became monarch in 1558, she was prudent enough to recognize these limitations and to achieve her ends without breaching them. In the dangerous post-1570 years, when the Counter-Reformation was at its height and Spanish troops were active in the Netherlands, this was a difficult task to fulfil. Since her country was no match for any of the real ‘superpowers’ of Europe, Elizabeth sought to maintain England’s independence by diplomacy and, even when Anglo-Spanish relations worsened, to allow the ‘cold war’ against Philip II to be conducted at sea, which was at least economical and occasionally profitable.66 Although needing to provide monies to secure her Scottish and Irish flanks and to give aid to the Dutch rebels in the late 1570s, Elizabeth and her ministers succeeded in building up a healthy surplus during the first twenty-five years of her reign – which was just as well, since the queen sorely needed a ‘war chest’ once the decision was taken in 1585 to dispatch an expeditionary force under Leicester to the Netherlands.
The post-1585 conflict with Spain placed both strategical and financial demands upon Elizabeth’s government. In considering the strategy which England should best employ, naval leaders like Hawkins, Raleigh, Drake, and others urged upon the queen a policy of intercepting the Spanish silver trade, raiding the enemy’s coasts and colonies, and in general exploiting the advantages of sea power to wage war on the cheap – an attractive proposition in theory, although often difficult to implement in practice. But there was also the need to send troops to the Netherlands and northern France to assist those fighting the Spanish army – a strategy adopted not out of any great love of Dutch rebels or the French Protestants but simply because, as Elizabeth argued, ‘whenever the last day of France came it would also be the eve of the destruction of England’.67 It was therefore vital to preserve the European balance, if need be by active intervention; and this ‘continental commitment’ continued until the early seventeenth century, at least in a personal form, for many English troops stayed on when the expeditionary force was merged into the army of the United Provinces in 1594.
In performing the twin function of checking Philip II’s designs on land and harassing his empire at sea, the English made their own contribution to the maintenance of Europe’s political plurality. But the strain of supporting 8,000 men abroad was immense. In 1586 monies sent to the Netherlands totalled over £100,000, in 1587 £175,000, each being about half of the entire outgoings for the year; in the Armada year, allocations to the fleet exceeded £150,000. Consequently, Elizabeth’s annual expenditures in the late 1580s were between two and three times those of the early 1580s. During the next decade the crown spent over £350,000 each year, and the Irish campaign brought the annual average to over £500,000 in the queen’s last four years.68 Try as it might to raise funds from other sources – such as the selling of crown lands, and of monopolies – the government had no alternative but to summon the Commons on repeated occasions and plead for extra grants. That these (totalling some £2 million) were given, and that the English government neither declared itself bankrupt nor failed to pay its troops, was testimony to the skill and prudence of the monarch and her councillors; but the war years had tested the entire system, left debts to the first Stuart king, and placed him and his successor in a position of dependence upon a mistrustful Commons and a cautious London money market.69
There is no space in this story to examine the spiralling conflict between crown and Parliament which was to dominate English politics for the four decades after 1603, in which finance was to play the central part.70 The inept and occasional interventions by English forces in the great European struggle during the 1620s, although very expensive to mount, had little effect upon the course of the Thirty Years War. The population, trade, overseas colonies, and general wealth of England grew in this period, but none of this could provide a sure basis for state power without domestic harmony; indeed, the quarrels over such taxes as Ship Money – which in theory could have enhanced the nation’s armed strength – were soon to lead crown and Parliament into a civil war which would cripple England as a factor in European politics for much of the 1640s. When England did re-emerge, it was to challenge the Dutch in a fierce commercial war (1652–4), which, whatever the aims of each belligerent, had little to do with the general European balance.
Cromwell’s England of the 1650s could, however, play a Great Power role more successfully than any previous government. His New Model Army, which emerged from the civil war, had at last closed the gap that traditionally existed between English troops and their European counterparts. Organized and trained on modern lines established by Maurice of Nassau and Gustavus Adolphus, hardened by years of conflict, well disciplined, and (usually) paid regularly, the English army could be thrown into the European balance with some effect, as was evident in its defeat of Spanish forces at the battle of the Dunes in 1658. Furthermore, the Commonwealth navy was, if anything, even more advanced for the age. Favoured by the Commons because it had generally declared against Charles I during the civil war, the fleet underwent a renaissance in the later 1640s: its size was more than doubled from thirty-nine vessels (1649) to eighty (1651), wages and conditions were improved, dockyard and logistical support were bettered, and the funds for all this regularly voted by a House of Commons which believed that profit and power went hand in hand.71 This was just as well, because in its first war against the Dutch the navy was taking on an equally formidable force commanded by leaders – Tromp and de Ruyter – who were as good as Blake and Monk. When the service was unleashed upon the Spanish Empire after 1655, it was not surprising that it scored successes: taking Acadia (Nova Scotia) and, after a fiasco at Hispaniola, Jamaica; seizing part of the Spanish treasure fleet in 1656; blockading Cádiz and destroying the flota in Santa Cruz in 1657.
Yet, while these English actions finally tilted the balance and forced Spain to end its war with France in 1659, this was not achieved without domestic strains. The profitable Spanish trade was lost to the neutral Dutch in these years after 1655, and enemy privateers reaped a rich harvest of English merchant ships along the Atlantic and Mediterranean routes. Above all, paying for an army of up to 70,000 men and a large navy was a costly business; one estimate suggests that out of a total government expenditure of £2,878,000 in 1657, over £1,900,000 went on the army and £742,000 on the navy.72 Taxes were imposed, and efficiently extorted, at an unprecedented level, yet they were never enough for a government which was spending ‘four times as much as had been thought intolerable under Charles I’ before the English Revolution.73 Debts steadily rose, and the pay of soldiers and sailors was in arrears. These few years of the Spanish war undoubtedly increased the public dislike of Cromwell’s rule and caused the majority of the merchant classes to plead for peace. It was scarcely the case, of course, that England was altogether ruined by this conflict – although it no doubt would have been had it engaged in Great Power struggles as long as Spain. The growth of England’s inland and overseas commerce, plus the profits from the colonies and shipping, were starting to provide a solid economic foundation upon which governments in London could rely in the event of another war; and precisely because England – together with the United Provinces of the Netherlands