After a short truce, war broke out again in 1803, Pitt was not then in power, but was the patron and more or less the adviser of Addington's weak administration. That was the period when Napoleon made great and serious preparations for an invasion of England; and it was necessary to take unprecedented measures for home defence. Instead of thinking out some plan for training the entire manhood of the nation to arms, expanding the Militia and compelling every man to serve in it, Addington and his colleagues devised a system which was one long tissue of absurdities. They began by instituting a ballot for fifty thousand Militia, but permitted the ballotted men to provide substitutes instead of serving in person. The price of substitutes soon rose to £30, ten times the amount of the bounty offered to recruits for the Regular Army; and as a natural consequence all the men who should have enlisted in the Army were drawn into the Militia, while the men who should have served in the Militia did not serve at all. Having failed to raise fifty thousand Militia, Ministers asked for twenty-five thousand more on the same terms, which raised the price of substitutes still higher. They then asked for corps of Volunteers upon very favourable conditions, and then ordained that fifty thousand more men should be raised by ballot, once again with substitution permitted, and should be formed into second battalions to the Regular Army. They next passed an Act compelling all able-bodied men to undergo compulsory training, unless a certain proportion came forward as Volunteers upon less favourable terms than those offered to the first Volunteers. Thus there were three different kinds of ballotted men and two different kinds of Volunteers. The result was that recruiting for the Regular Army was killed, at great expense, while the whole of the levies were failures; and the only reason was that the Government had not the courage to insist upon the country's undoubted right to the service of every able-bodied citizen for her defence.