The period of merely occasional intervention in industry by the State lasted down to the time of Elizabeth, when for the first time the State undertook a comprehensive system of industrial regulation. This, however, no longer meant the exclusive dominance of financial considerations, although the need for raising money was always very present to the minds of Elizabeth and her ministers. The new policy was primarily political in motive rather than economic, and was directed on the one side to the fostering and development of trade, and on the other to the conservation of the man-power of the nation. The Elizabethan Statute of Artificers, passed in 1563, laid down elaborate provisions both for regulating the flow of labour into various classes of occupations and for prescribing the conditions under which the work was to be carried on. Attention in modern times has been mainly directed to the clauses dealing with wages; but the principle of the Act was very much wider than any mere regulation of wages. It rested upon the principle of compulsory labour for all who were not in possession of independent means; and its basis was the obligation upon every one who could not show cause to the contrary to labour on the land. At the same time it aimed at protecting the supply of labour for the urban industries, and, still more, at giving to urban industry an advantage against the growing competition of the country-side. In short, it incorporated a general scheme for the redistribution of the national man-power in accordance with a definite conception of national policy. This distribution was accomplished mainly by an elaborate code of regulations for apprenticeship, parts of which lived on right into the nineteenth century. With this regulation of trade and commerce went also a regulation of wages. As in the case of the Statute of Labourers, the object was primarily that of preventing the labourer from earning more than his customary standard, allowing for variations in the cost of living. The rates of wages which the Justices of the Peace were ordered to fix were thus primarily _maxima_, and the Act contained stringent penalties against those who obtained, or paid, more than these _maxima_. In some cases, however, if rarely, the rates laid down were also _minima_, and employers were fined for paying less. This was, however, clearly exceptional, and a special declaratory Act passed under James I., which clearly empowered the justices to fix binding minimum rates, shows that there had been legal doubt about it. In any case the general tendency of the Tudor legislation is clear. It aimed at establishing and enforcing by law the existing social structure, at standardizing the relations between the classes, and at putting them all in their places under the direction of the sovereign State. In short, the Tudor system represents, in the most complete form possible, the State regulation of private industry.