But the report of 1618 was doubtless of great value as a guidance for the building of the new Stuart navy. “The manner of building, which in ships of war is of greatest importance, because therein consists both their sailing and force. The ships that can sail best can take or leave (as they say), and use all advantages the winds and seas afford; and their mould, in the judgment of men of best skill, both dead and alive, should have the length treble the breadth, and the breadth in like proportion to the depth, but not to draw above 16 foot of water because deeper ships are seldom good sailers.... They must be somewhat snug built, without double galleries and too lofty upper works, which overcharge many ships and make them loom fair, but not work well at sea.” As for the strengthening of the royal ships the Commissioners subscribed to the manner of building approved by “our late worthy prince”: “first, in making three orlops, whereof the lowest being two feet under water, both strengtheneth the ship, and though her sides be shot through, keepeth it from bilging by shot and giveth easier means to find and stop the leaks. Second, in carrying their orlops whole floored throughout from end to end. Third, in laying the second orlop at such convenient height that the ports may bear out the whole fire of ordnance in all seas and weathers. Fourth, in placing the cook-rooms in the forecastle, as other ships of war do, because being in the midships, and in the hold, the smoke and heat so search every corner and seam, that they make the oakum spew out, and the ships leaky, and some decay; besides, the best room for stowage of victualling is thereby so taken up, that transporters must be hired for every voyage of any time; and, which is worst, when all the weight must be cast before and abaft, and the ships are left empty and light in the midst, it makes them apt to sway in the back, as the _Guardland_ and divers others have done.” The ships built under the regulations of the Commissioners were certainly an improvement on earlier ships in many respects, but in one element of power they proved to be deficient, namely, in speed. The stoutly built, full-bodied, lumbering English two-deckers were out-sailed and out-manœuvred, it was noticed, by the relatively light and fine-lined Hollanders. Moreover our smaller ships were known to be no match in speed for the Dunkirk privateers which at this time infested the seas. A new type was seen to be necessary. The existing differentiation of warships into rates or classes was insufficient. For the line of battle there must be ships in which force of artillery was the predominant quality; but for other duties there must also be ships in which speed, and not force, was the distinguishing note. From this necessity was evolved the _frigate_.