Unfortunately, the English fleet was far less prepared than the land forces. The militia had been easily and cheaply extemporized, but a fleet can only be prepared by long and painful sacrifices. The entire English navy contained but thirteen ships of over four hundred tons, and including small cutters and pinnaces there were but thirty-eight vessels of all sorts and sizes carrying the queen's flag. Fortunately, Sir John Hawkins was at the head of the naval administration, and in spite of the parsimony of Elizabeth had kept the fleet in a good state of repair and equipment. The merchant navy, although numerous, was equally deficient in vessels of any size. Philip had encouraged ship-building in Spain by grants from the crown, allowing four ducats a ton for every ship built of above three hundred tons burden, and six ducats a ton for every one above five hundred tons. Thus he had a large supply of great ships to draw upon in addition to those of the royal navy, while in England the largest vessels belonging to private owners did not exceed four hundred tons, and there were not more than two or three vessels of that size sailing from any port of the country. The total allowance by the queen for the repair of the whole of the royal navy, wages of shipwrights, clerks, carpenters, watchmen, cost of timber, and all other necessary dockyard expenses, was but £4000 a-year. In December the fleet was ready for sea, together with the contingent furnished by the liberality and patriotism of the merchants and citizens of the great ports. But as soon as it was got together half the crews collected and engaged at so great an expense were dismissed, the merchant ships released, and England open to invasion, and had Parma started in the vessels he had prepared, Lord Howard, who commanded the English navy, could not have fired a shot to have prevented his crossing. Well might Sir John Hawkins in his despair at Elizabeth's caprices exclaim: "We are wasting money, wasting strength, dishonouring and discrediting ourselves by our uncertain dallying." But though daily reports came from Spain of the readiness of the Armada to set sail, Elizabeth, even when she again permitted the navy to be manned, fettered it by allowing it to be provided with rations for only a month at a time, and permitting no reserves to be provided in the victualling stores; while the largest vessels were supplied with ammunition for only a day and a half's service, and the rest of the fleet with but enough for one day's service. The council could do nothing, and Lord Howard's letters prove that the queen, and she only, was responsible for the miserable state of things that prevailed.