The next two years saw a repetition of these voyages to the Isles, distinguished by the usual features of active enterprise and seamanship on the part of the English, and of helpless adherence to routine on the part of the Spaniards. In 1594, however, the queen's policy was changed. Although these voyages to the Islands were sound in policy, and had done immense mischief to the Spaniards, they had not proved profitable to the queen. In 1594 she listened to the advice of Sir Francis Drake and Sir John Hawkins, and decided to revert to an older method of striking at the wealth of the King of Spain. "These two generals," says Sir William Monson, "presuming much upon their own experience and knowledge, used many persuasions to the queen to undertake a voyage to the West Indies, giving much assurance to perform great services, and promising to engage themselves very deeply therein with the adventure of both substance and life." The plan was, in fact, a repetition of the scheme partially executed in 1585. It was to sail to the West Indies and there seize the King of Spain's treasure at its port of departure. The plunder of the Islands and of Spanish ships would, it was calculated, at any rate cover the expenses of the expedition. It was late in sailing, owing to fear of an invasion by the Spaniards from the Low Countries. The Cardinal Archduke Albert, Governor of the Spanish Netherlands since Parma's death in 1592, had made himself master of the great part of Brittany, and one small expedition did actually come out of the little port of Blavet and burn the town of Penzance. So soon, however, as it was known that the invasion would be limited to this trumpery raid, Drake and Hawkins were allowed to sail. As was usual in the case, the squadron consisted only in part of ships belonging to the queen. Of these there were six--the =Defiance=, in which Sir Francis Drake had his flag, and the =Garland=, the flagship of Sir John Hawkins, the =Hope=, the =Bonaventure=, the =Foresight=, and the =Adventurer=. There were, besides these, twenty vessels belonging to private adventurers. Two thousand six hundred soldiers were embarked to serve on shore in the proposed capture of Panama. They were under the command of Sir Thomas Baskerville, a gentleman of Devon.