Ralegh did not long remain inactive. He found that a great adventure was in course of preparation in which he must needs take his part. A year before the Armada Sir John Hawkins had planned an attack on Spain's chief harbour, Cadiz, and in this year of 1596 Lord Howard of Effingham, High Admiral of England, determined to carry the plan into effect. The Earl of Essex was put in command of the land forces, Effingham of the fleet. Elizabeth invariably favoured the dangerous policy of divided command, which Ralegh in his "History of the World" cannot censure too strongly. The reason why such a clever woman continued to make this mistake is not known. Probably she feared that one man by a conspicuous victory would become too powerful for a subject. If this were the reason, and it seems likely that it was, her fears would naturally increase with her age. The same feeling, no doubt, prompted her strange choice of the inexperienced Essex. He, at any rate, she would think, would remain her loyal subject, and would not aspire to rebel against his royal mistress. The preparations were on an extensive scale. The fleet was divided into four squadrons, which were led by Essex, by the Lord Admiral, by Ralegh, and by Lord Thomas Howard. The total muster numbered seventeen Queen's ships and seventy-six hired ships, which were chiefly used for transport, besides pinnaces and small craft. They were assisted by a Dutch squadron of twenty-four vessels. The men were nearly sixteen thousand in all, land-soldiers and mariners. Essex was waiting with the fleet at Plymouth for Ralegh, who had been commissioned to find men for the expedition. Ralegh's delay was the cause of much anxiety, and naturally there were not wanting men ready to construe that delay into treachery. Gossip Bacon suggests that he was endeavouring to undermine the position of Essex and get himself nominated general of the land forces in his stead. The true reason of his delay is, however, available. On May 4 he writes from Northfleet on the Thames to Sir Robert Cecil, telling him of the difficulty he experienced in obtaining ships and men for the service. "Mr. Pope presst all the ships. Hee can also informe you how little her Majestie's autoretie is respected. For as fast as wee press men one day they come away another and say they will not serve." He recommends Mr. Pope to Sir Robert Cecil for his keenness, and proceeds, "Here are at Gravesend ... sume 22 saile. Thos above that ar of great draught of water cannot tide it down, for they must take the high water and dare not make after an houre ebb untill they be past Barking Shelf. And now the wind is so strong as it is impossible to turne down, or to warpe down or to tooe downe. I cannot writ to our generalls all this tyme; for the pursevant found me in a countre villag, a mile from Gravend honting after runaway marriners and dragging in the mire from ale-house to ale-house, and could gett no paper, butt that the pursevant had this peece."