More effectual measures than the punishment of backward captains were the recall of Penn from the north, and the commissioning of fresh ships. It was not easy to find the men. Blake had complained in his first despatch that the great number of "private men-of-war," that is, privateers, allowed to cruise against Dutch commerce, served to draw men off from the fleet. The sailors preferred the licence of the privateer, and the opportunities for plunder it presented, to the sterner discipline of the man-of-war. In the out-ports, too, it was difficult to enforce the press. The magistrates were frequently shipowners, who were unwilling to lose the crews of their own vessels, and, when they were not, they had a fellow-sympathy with their townsmen, which made them languid in the discharge of their duties. In spite of the efforts made by the Commonwealth Government to tempt men by promises of better pay and a larger share of prize-money, it was compelled to make unsparing use of the old prerogatives of the Crown, to force all subjects to take a share in defending the realm. Even this did not suffice. Soldiers in large numbers had to be drafted into the fleet to serve as marines, although that word was not in use. There can be no doubt that these men were intended to make good the want of sailors, for it was especially provided that they were to be called upon to do the same work as far as possible. Throughout the December of 1652 and January and February of 1653, Tromp rode unmolested in the Channel. It was at this time that, according to a legend for which there is not much foundation, he hoisted a broom at his mainmast top as the outward and visible sign of his intention to sweep the Channel. So little did the Council of State feel capable of opposing him with a sufficient naval force during the earlier part of these three months, that it sent off officers to the south coast to remove the lights and buoys, in order to make it dangerous for the Dutch to approach the shore. In fact, both the Government and its admirals had learned that if the Dutch were to be fairly beaten off, a competent force must be collected, and it must act together. To strengthen the command, Deane was called back from Scotland, and Monk was named to fill up the vacancy left by the death of Popham. These two, with Blake, formed the Commission to discharge the office of Lord High Admiral commanding at sea. Penn was continued in his place as Vice-Admiral, but Bourne was removed from active service to direct the dockyard at Harwich, and his place at sea was taken by John Lawson, who had gained a high reputation for skill and courage as a captain. These two may be said to have served as Nautical Assessors to the three soldiers who were entrusted with the general military direction of the fleet.