Deane and Monck. Penn did not sign them at all, but this really in no
way affects his claim as a tactical reformer. For as he was
vice-admiral of the fleet and an officer of high reputation, his share
in the orders was probably as great as that of anyone else.

The winter of 1652-3 was the turning point of the war. The summer
campaign had shown how serious the struggle was to be, and no terms
for ending it could be arranged. Large reinforcements consequently had
been ordered, and Monck and Deane nominated to assist Blake as joint
generals-at-sea for the next campaign. Four days later, on November
30, 1652, Blake had been defeated by Tromp off Dungeness, and several
of his captains were reported to have behaved badly. An inquiry was
ordered, and the famous 'Laws of War and Ordinances of the Sea,'
prepared by Sir Harry Vane by order of Parliament for the better
enforcement of discipline, were put in force. Notwithstanding these
vigorous efforts to increase the strength and efficiency of the sea
service, it was not till after the first action of the new campaign
that an attempt was made to improve the fleet tactics. The action off
Portland on February 18, 1653, and the ensuing chase of Tromp, marked
the first real success of the war; but though the generals succeeded
in delivering a severe blow to the Dutch admiral and his convoy, it
must have been clear to everyone that they narrowly escaped defeat
through a want of cohesion between their squadrons. On the 19th and
20th Tromp executed a masterly retreat, with his fleet in a crescent
or obtuse-angle formation and his convoy in its arms, but nowhere is
there any hint that either side fought in line ahead.[4] On the 25th
the fleet had put into Stokes Bay to refit, and between this time and
March 29 the new orders were produced.[5]

The first two articles it will be seen are practically the same as the