There were others besides Leicester whose recklessness or greed was dragging England to the brink of a war with Spain, in spite of Burghley’s efforts. Strong as was the great statesman’s interest in increasing the legitimate trade of the country, we have seen that from the beginning of Hawkins’ voyages to the West Coast of Africa, and thence to South America with slaves, Burghley had refused any participation in the syndicates that financed them. He had, it is true, on more than one occasion repudiated the claim of the Spaniards, and especially of the Portuguese, to exclusive dominion of the western world by virtue of the Pope’s bull, but he had always frowned upon the filibustering attempts of the syndicates, under the auspices of some of the aldermen of London, to establish posts in territory occupied by other Christian powers, or to force trade upon established settlements against the will of the authorities. He had honestly done his best to check robbery in the Channel by those who called themselves privateers, and almost alone of the Councillors, he had no share or interest in the piratical ventures under the English flag which had committed such destructive depredations upon shipping. The attack upon Hawkins’ fleet at San Juan de Ulloa, 1568, had aroused fierce and not unnatural indignation amongst sailors and merchants in England; but the expedition was in defiance of the Spanish law, in a port belonging to and occupied by Spain, and it is more than doubtful whether Burghley advised the seizure of the specie belonging to Philip, in December 1568, in reprisal for the attack. There were ample reasons, and an excellent legal pretext, for the seizure of the money without that. In fact it was a master-stroke of policy which the foolish rashness of De Spes had put into Burghley’s power, and the latter and Elizabeth naturally welcomed the opportunity of crippling Alba. But when it became a question of revenging San Juan de Ulloa by the despatch of a strong armed expedition against Spanish colonies, Lord Burghley looked askance at what might well be made a _casus belli_ by Spain, and could only enrich the mariners and shareholders who took part in it.