In every age states of varying size and constitution and at every level of development have found naval warfare to be one of their most formidable and expensive tasks. Ships have always been large, costly and complicated, and warships much more complicated and costly than any others. Scholars are nowadays inclined to emphasize the power, wealth and sophistication of the Anglo-Saxon kingdoms, and there is not more striking illustration of this than the advanced and elaborate administrative structures of the early English navy.

Naval dominance of European waters was the largest, longest, most complex and expensive project ever undertaken by the British state and society.

Medieval England was a great military power with a sophisticated machinery of government, but her naval administration, at best improvised and for long periods missing altogether, pointed to a grave weakness: the lack of any reliable means of putting a force of warships at the disposal of the crown. Only Richard I and Henry V of all the kings of England can be said to have understood the problem and attempted to remedy it. It is no coincidence that they wer by far the most successful in war.

Its subject is the slow and erratic process by which the peoples of the British Isles learnt - and then for long periods forgot - about the 'Safeguard of the Sea', as the 15th century phrase had it, meaning the use of the sea for national defence, and the defence of those who used the sea.

In every age states of varying size and constitution and at every level of development have found naval warfare to be one of their most formidable and expensive tasks. Ships have always been large, costly and complicated, and warships much more complicated and costly than any others. Scholars are nowadays inclined to emphasize the power, wealth and sophistication of the Anglo-Saxon kingdoms, and there is not more striking illustration of this than the advanced and elaborate administrative structures of the early English navy.

It is not surprising that only one medieval state, Venice, long possessed anything clearly identifiavble as a navy in this sense. We shall see that no state in the British Isles attained attained this level of sophistication before the 16th century, and no history of the Royal Navy, in any exact sense of the words, could legitimately begin much before then. This book, which does, is not an institutional history of the Royal Navy, but a history of naval warfare as an aspect of national history. All and any methods of fighting at sea, or using the sea for warlike purposes, are its concern.

The arrival of the Barbary pirates radically changed English attitudes. Instead of patriotic pirates plundering foreign cargoes and bringing them homes to enrich their countrymen, the 'Turks' were in the usual Mediterranean business of slave-raiding - and now the English were the victims. The West Country men suffered the heaviest, and did not appreciate the irony. The Newfoundland fishery, dominated by Devon ports, lost at least 20 ships in 1611 alone.