[126] Ibid., September 28, 1778. [127] Ibid., November 4, 1778. [128] Marine Committee Letter Book, Marine Committee to Navy Board of Middle Department, January 22, 1778. The Philadelphia Board was ordered on January 22 to remove to Baltimore, but it appears that it did not go until April. [129] For salaries of the Commissioners of the Navy and their employees, see Journals of Continental Congress, November 7, 1776; April 19, 1777; October 23, 1777; October 10, 1778; October 31, 1778; November 12, 1779; January 28, 1780; and September 25, 1780. [130] Miscellaneous Manuscripts, Division of Manuscripts, Library of Congress. CHAPTER IV THE WORK OF THE NAVY BOARDS AND THE MARINE COMMITTEE There was a painful lack of system about the business methods of the Naval Department of the Revolution. Then, official routine was not settled as at present. Usage had had no opportunity to establish fixed and orderly forms of procedure; and amid the distractions of war, when some real or supposed emergency was continually inviting one authority or another to disregard regularity and order, usage could obtain but scant permission to begin its work. Wars are famous for breaking through, not for forming a crust of official precedent. The administrative machinery of armies and navies tends to adapt itself to the conditions of peace—now the normal state of nations. During long periods of partial stagnation this machinery becomes complicated; its tension is weakened; and many of its axles grow rusty from disuse. When war breaks out, the conditions of administration are greatly changed. A thousand extra calls for work to be done at once are loud and inexorable. Expedition must be had at all hazards and costs. Rapid action of the administrative machinery must be obtained, its tension screwed down, extra cog wheels discarded, and efficient machinists substituted for the dotards of peace. It is obvious that with this sort of difficulty those who managed the naval affairs during the Revolution did not have to contend, for the organ of naval administration was then created from its foundation. Their difficulties sprang not from the age, but from the newness of this organ. It lacked a nice correlation of parts, the smooth action that comes from long service, and the system that immemorial routine establishes.