The most enduring of them was provincial maladministration, which rendered so many of his orders futile. For usually when he directed a division to move, he was informed that it was destitute of both munitions and transport[286]. And changes of organization were often made against his protests--e. g. a new army regulation cut down all regimental formations to a single battalion of very heavy strength (1,200 bayonets). Wellington would have preferred a two-battalion formation, in which the second unit should act as a dépôt and feeder to the first[287]. He complained that if a regiment was badly cut up in action, there would be no machinery for keeping it up to a decent average. The experience of the British army with regard to single-battalion corps had been conclusive against the system for the last five years of Peninsular service. But his protests were vain--internal organization of units did not come within the wording of his powers as generalissimo, and the new organization continued, dozens of second battalions being scrapped. The net result was that, when Wellington took the field in May 1813, he only had with him two of Castaños’s divisions and three of those of the Army of Galicia--less than 25,000 men. The Andalusian ‘Army of Reserve,’ which had been promised to him, started late for want of organization, moved slowly for want of magazines, and only reached the front when the battle of Vittoria had been won and the French had been expelled from Spain[288]. The Cortes had at least 160,000 men under arms; not a sixth part of them were available during the decisive operations. But of this more in its proper place.