Ample grounds existed for dissatisfaction with the government. Unfortunately, this was specially the case with respect to the navy. Its expenses had greatly increased. During the eight years of the late war, 1755 to 1762, the money spent upon it, exclusive of ordnance and votes for men, amounted to no more than L3,390,000; during eight years of Sandwich's administration, 1771 to 1778, it was stated in parliament to have been L6,472,000.[141] During the latter period there had been voted for repairing and building ships L2,900,000, and for extra stores for them L600,000, in all L3,500,000, enough, it was said, to build 100 men-of-war and as many frigates. Nothing is so destructive to efficiency as corruption. Under Sandwich abuses of all kinds flourished. Many existed before his time, and things grew worse under him. When in 1778 the naval estimates for the year were laid before the commons, it was stated that though L27,000 had been voted between 1771 and 1775 for the repair of the _Dragon_ (74), and L10,273 for her stores, the ship was lying untouched and rotting at Portsmouth, and so in various degrees with other ships. In reply, Welbore Ellis, the treasurer of the navy, said that though estimates were the usual way of raising money, the money once raised was spent at the discretion of the admiralty. Indignant at this amazing statement, Burke flung the smart book of estimates at the treasury bench. Ships were built of foreign oak of an inferior kind and needed constant repair; contracts were jobbed; stores were wasted, stolen, and sold. The country paid for many more seamen than it got; for example, in September, 1777, the number returned as victualled was 51,715, though the seamen actually serving were only 47,407. Greenwich hospital, with a revenue of L70,000, was a hot-bed of abuses. What was the result of this corrupt system? How did our navy stand in 1778 in comparison with the navies of France, then at war with us, and Spain, which was on the eve of joining against us? Choiseul's policy of naval reform was steadily pursued, and in 1778 France had eighty ships of the line in good order and 67,000 seamen. Spain followed the lead of France and, when she entered the war in 1779, had about sixty ships of the line. In 1778 we had 119 first, second, and third rates; of this number there were, on Sandwich's showing, in November, 1777, excluding ships on foreign service, only thirty-five manned and ready for sea, and seven which he said were nearly ready, but some of the thirty-five were short of their full complement of men, and there was a great scarcity of frigates. By July, 1778, the number ready was stated as forty-five. But when Keppel put to sea in June, it was with difficulty that twenty-one could be got ready to sail with him.[142] [Sidenote: _BATTLE OFF USHANT._]