agricultural nation, without a navy of any size, without a regular army,
with factions in every quarter, with struggling and contending religious
parties, with a jealous parliament of unenlightened country squires; yet
a nation seriously threatened by the most powerful monarchies of the
Continent, who detested the doctrines which were then taking root in the
land. Against the cabals of Rome, the navies of Spain, and the armies of
France,--alike hostile and dangerous,--England could make but a feeble
show of physical forces, and was protected only by her insular position.
The public dangers were so imminent that there was needed not only a
strong hand but a stout heart and a wise head at the helm. Excessive
caution was necessary, perpetual vigilance was imperative; a single
imprudent measure might be fatal in such exigencies. And this accounts
for the vacillating policy of Elizabeth, so often condemned by
historians. It did not proceed from weakness of head, but from real
necessity occasioned by constant embarrassments and changing
circumstances. According to all the canons of expediency, it was the
sign of a sagacious ruler to temporize and promise and deceive in that
sad perplexity. Governments, thus far in the history of nations, have
been carried on upon different principles from those that bind the
conduct of individuals, especially when the weak contend against the
strong. This, abstractly, is not to be defended. Governments and
individuals alike are bound by the same laws of immutable morality in
their general relations; but the rules of war are different from the
rules of peace. Governments are expediencies to suit peculiar crises and
exigencies. A man assaulted by robbers would be a fool to fall back on
the passive virtues of non-resistance.

Elizabeth had to deal both with religious bigots and unscrupulous kings.
We may be disgusted with the course she felt it politic to pursue, but
it proved successful. A more generous and open course might have