ter
our merchant service as to permit the number of those already
there to be increased. It was in 1759 that Lord, then Commander,
Duncan reported that the crew of the hired merchant ship _Royal_
_Exchange_ consisted 'to a large extent of boys and foreigners,
many of whom could not speak English.' In 1770 by 11 George III,
c. 3, merchant ships were allowed to have three-fourths of their
crews foreigners till the 1st February 1772. Acts permitting
the same proportion of foreign seamen and extending the time
were passed in 1776, 1778, 1779, 1780, 1781, and 1782. A similar
Act was passed in 1792. It was in contemplation to reduce the
foreign proportion, after the war, to one-fourth. In 1794 it
was enacted (34 George III, c. 68), 'for the encouragement of
British seamen,' that after the expiration of six months from the
conclusion of the war, vessels in the foreign, as distinguished
from the coasting, trade were to have their commanders and
three-fourths of their crews British subjects. From the wording
of the Act it seems to have been taken for granted that the
proportion of three-fourths _bona_fide_ British-born seamen was
not likely to be generally exceeded. It will have been observed
that in all the legislation mentioned, from the time of George
II downwards, it was assumed as a matter of course that there
were foreign seamen on board our merchant vessels. The United
States citizens in the British Navy, about whom there was so
much discussion on the eve of the war of 1812, came principally
from our own merchant service, and not direct from the American.
It is remarkable that, until a recent date, the presence of
foreigners in British vessels, even in time of peace, was not
loudly or generally complained of. Mr. W. S. Lindsay, writing in
1876, stated that the throwing open the coasting trade in 1855
had 'neither increased on the average the number of foreigners we
had hitherto been allowed to employ in our ships, nor deteriorated
the number and quality of British seamen.' I have brought forward
enough evidence to show that, as far as the merchant service
was the proper recruiting ground for the British Navy, it was
not one which was devoid of a considerable foreign element.

We may, nevertheless, feel certain that that element never amounted
to, and indeed never nearly approached, three-fourths of the
whole number of men employed in our 'foreign-going' vessels. For
this, between 50,000 and 60,000 men would have been r