The material conditions of seamen while in the service, the pay and provisions, were, he considered, all that could be desired; but still there was great indisposition to enlist, and the desertions in the last war, 1793-1801, rose to the enormous figure of forty-two thousand.

The remedy he outlined was a Registration of seamen, and of certificates to be given them, bearing a personal description by which they could be identified, and on which their character and services would appear.

For lack of such papers, seamen by hundreds were in London in distress, although large amounts of money were due them at prize agencies, where the agent feared to pay for want of identification.

A certificate showing five years' faithful service should entitle the holder to an annual bounty of two guineas, to be increased by further periods.

Such provisions were well calculated to appeal to men accustomed to entertain prudential considerations, and to create gradually a class with whom they would weigh, and who would by them be retained in permanent employment.