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Victualling Commissioners
The Commissioners for the Victualling of the Navy, often called the Victualling Commissioners or Victualling Board, was the body responsible under the Navy Board for victualling ships of the British Royal Navy. It oversaw the vast operation of providing naval personnel (140,000 men in 1810) with enough food, drink and supplies to keep them fighting fit, sometimes for months at a time, in whatever part of the globe they might be stationed. It existed from 1683 until 1832 when its function was first replaced by the Department of the Comptroller of Victualling and Transport Services until 1869 then that office was also abolished and replaced by the Victualling Department.
Under Elizabeth I, a General Surveyor of Victuals had been appointed in 1550 a principal officer of the Navy Board to oversee contracts for food and other provisions for the Navy. In 1550 he was listed as one of the seven members of the Board of Principal Officers and Commissioners of the Navy; he was required to 'take care always to have in store a stock of victuals to supply a thousand men at sea for one month at a fortnight's notice'. At first the Victualling Office was accommodated in the Tower of London, but it soon spread outside the precincts to the east (on to the site of the recently dissolved and demolished Abbey of St Mary Graces). The complex included storehouses, ovens, brewhouses and bakeries. (Milling took place across the river at Rotherhithe, and in 1650 a slaughterhouse was acquired in Deptford). Officials of the Victualling Board were to remain accommodated here until the nineteenth century; however, the constraints of the site (and difficult riverside access) led to the establishment of a new manufacturing facility at the Deptford site (the future Deptford Victualling Yard) in 1672.
By the mid-seventeenth century the established arrangement was for a single contractor to be engaged to make all necessary victualling provisions, with the Navy Board laying down strict criteria on the quality of the provisions it required. In the 1660s, Samuel Pepys, who was then Clerk of the Acts of the Navy, reformed the system of having a Purser assigned to each ship to oversee the distribution of supplies, and obliged each one to lodge a cash surety, and to keep complete accounts of every item issued. By the time of the Anglo-Dutch Wars, however, the system was breaking down (the government complaining that sufficient provisions had not been delivered, and the contractor complaining that payment had not been made). As a result of this, a salaried Board of Commissioners was established in 1683, and this body retained oversight of victualling for the next 150 years.
Though nominally under the direction of the Navy Board (which had its headquarters nearby on Tower Hill), the Victualling Board was effectively independent. The Victualling Board took over certain functions, including medical services, from the Transport Board on its dissolution in 1817. The Victualling Board itself was abolished in the Admiralty reforms of 1832, victualling then became the responsibility of the Comptroller of Victualling and Transports, who was superintended by the Fourth Sea Lord. In 1862 transport duties passed to a separate Transport Department and in 1869 the office of Comptroller of Victualling was abolished. His former duties were divided between the newly formed Contract and Purchase Department, under the Parliamentary and Financial Secretary, which became responsible for purchasing, management of the victualling stores facilities were under the control of the Superintendent of Victualling and the Victualling Department under the control of the Director of Victualling.
By 1739 the various Victualling Office facilities cost the state £16,241 to maintain, in addition to expenses for the purchase of victuals. In 1747, during the War of the Austrian Succession, this had risen to £30,393. In due course facilities were consolidated into Victualling Yards each with several processes and related storehouses accommodated on a single site. The Yards had deep-water wharves and were accessible (wind and weather permitting) from the major anchorages used by the Fleet. Under normal circumstances, ships due to set sail were expected to come to the nearest Yard to be loaded up with provisions. These would include preserved foodstuffs designed to last weeks or even months: ship's biscuit, salted beef, salted pork, pease, oatmeal, butter, cheese and beer. Most of these items were transported and stored in casks, which were themselves manufactured by the Board in large numbers at its on-site cooperages. In addition, the Victualling Yards provided fresh meat, bread and other items to ships stationed in port.
There was ongoing awareness of the need to stamp out corruption and improve quality. In 1658 the crew of Maidstone pulled down part of the Victualling Office at Rochester in protest at the foul quality of the food. Their captain Thomas Penrose sent up twelve men that were on shore at the time saying that although they were good men, the victualler had said "the more they complained [about the food], the worse their victuals should be". The reason so much of the manufacturing process took place in-house was to guarantee a level of quality. It was far easier to gauge the quality of raw materials than it would have been to evaluate finished product bought in from other providers (some of whom were not so scrupulous). Therefore, the Commissioners oversaw not only supply, but manufacture: of beer from hops, of flour from grain, of meat from livestock.
Though by no means perfect the system generally improved; if the food was of poor quality, at least there was plenty of it. Modern research has shown that the sailor's diet during the mid-eighteenth century contained nearly twice as many calories per day than was available to men on shore or in the British Army. The single largest contributor of calories was beer, of which the Victualling Board purchased sufficient quantity that each sailor could consume a ration of one gallon per day. Food – principally bread, pork, beef, peas and oatmeal – was provided by the Board as stores for up to six months at a time. By the late 1750s this diet was supplemented with portable soup. The quality of food was also slowly improved; by the period of the Napoleonic Wars only about 1% of supplies were actually condemned as unfit to eat.
By the early eighteenth century, Victualling Yards of various sizes had been established alongside several Royal Naval Dockyards in Britain, including Portsmouth, Plymouth, Deptford and Harwich (though the latter was closed, along with Harwich Dockyard, in 1713). There was also a Victualling Yard at Dover (which had no Dockyard, but was used to service ships in the nearby anchorage the Downs); the Maison Dieu served as Dover's victualling store from 1544 until 1831, when the Yard closed.
Victualling Commissioners
The Commissioners for the Victualling of the Navy, often called the Victualling Commissioners or Victualling Board, was the body responsible under the Navy Board for victualling ships of the British Royal Navy. It oversaw the vast operation of providing naval personnel (140,000 men in 1810) with enough food, drink and supplies to keep them fighting fit, sometimes for months at a time, in whatever part of the globe they might be stationed. It existed from 1683 until 1832 when its function was first replaced by the Department of the Comptroller of Victualling and Transport Services until 1869 then that office was also abolished and replaced by the Victualling Department.
Under Elizabeth I, a General Surveyor of Victuals had been appointed in 1550 a principal officer of the Navy Board to oversee contracts for food and other provisions for the Navy. In 1550 he was listed as one of the seven members of the Board of Principal Officers and Commissioners of the Navy; he was required to 'take care always to have in store a stock of victuals to supply a thousand men at sea for one month at a fortnight's notice'. At first the Victualling Office was accommodated in the Tower of London, but it soon spread outside the precincts to the east (on to the site of the recently dissolved and demolished Abbey of St Mary Graces). The complex included storehouses, ovens, brewhouses and bakeries. (Milling took place across the river at Rotherhithe, and in 1650 a slaughterhouse was acquired in Deptford). Officials of the Victualling Board were to remain accommodated here until the nineteenth century; however, the constraints of the site (and difficult riverside access) led to the establishment of a new manufacturing facility at the Deptford site (the future Deptford Victualling Yard) in 1672.
By the mid-seventeenth century the established arrangement was for a single contractor to be engaged to make all necessary victualling provisions, with the Navy Board laying down strict criteria on the quality of the provisions it required. In the 1660s, Samuel Pepys, who was then Clerk of the Acts of the Navy, reformed the system of having a Purser assigned to each ship to oversee the distribution of supplies, and obliged each one to lodge a cash surety, and to keep complete accounts of every item issued. By the time of the Anglo-Dutch Wars, however, the system was breaking down (the government complaining that sufficient provisions had not been delivered, and the contractor complaining that payment had not been made). As a result of this, a salaried Board of Commissioners was established in 1683, and this body retained oversight of victualling for the next 150 years.
Though nominally under the direction of the Navy Board (which had its headquarters nearby on Tower Hill), the Victualling Board was effectively independent. The Victualling Board took over certain functions, including medical services, from the Transport Board on its dissolution in 1817. The Victualling Board itself was abolished in the Admiralty reforms of 1832, victualling then became the responsibility of the Comptroller of Victualling and Transports, who was superintended by the Fourth Sea Lord. In 1862 transport duties passed to a separate Transport Department and in 1869 the office of Comptroller of Victualling was abolished. His former duties were divided between the newly formed Contract and Purchase Department, under the Parliamentary and Financial Secretary, which became responsible for purchasing, management of the victualling stores facilities were under the control of the Superintendent of Victualling and the Victualling Department under the control of the Director of Victualling.
By 1739 the various Victualling Office facilities cost the state £16,241 to maintain, in addition to expenses for the purchase of victuals. In 1747, during the War of the Austrian Succession, this had risen to £30,393. In due course facilities were consolidated into Victualling Yards each with several processes and related storehouses accommodated on a single site. The Yards had deep-water wharves and were accessible (wind and weather permitting) from the major anchorages used by the Fleet. Under normal circumstances, ships due to set sail were expected to come to the nearest Yard to be loaded up with provisions. These would include preserved foodstuffs designed to last weeks or even months: ship's biscuit, salted beef, salted pork, pease, oatmeal, butter, cheese and beer. Most of these items were transported and stored in casks, which were themselves manufactured by the Board in large numbers at its on-site cooperages. In addition, the Victualling Yards provided fresh meat, bread and other items to ships stationed in port.
There was ongoing awareness of the need to stamp out corruption and improve quality. In 1658 the crew of Maidstone pulled down part of the Victualling Office at Rochester in protest at the foul quality of the food. Their captain Thomas Penrose sent up twelve men that were on shore at the time saying that although they were good men, the victualler had said "the more they complained [about the food], the worse their victuals should be". The reason so much of the manufacturing process took place in-house was to guarantee a level of quality. It was far easier to gauge the quality of raw materials than it would have been to evaluate finished product bought in from other providers (some of whom were not so scrupulous). Therefore, the Commissioners oversaw not only supply, but manufacture: of beer from hops, of flour from grain, of meat from livestock.
Though by no means perfect the system generally improved; if the food was of poor quality, at least there was plenty of it. Modern research has shown that the sailor's diet during the mid-eighteenth century contained nearly twice as many calories per day than was available to men on shore or in the British Army. The single largest contributor of calories was beer, of which the Victualling Board purchased sufficient quantity that each sailor could consume a ration of one gallon per day. Food – principally bread, pork, beef, peas and oatmeal – was provided by the Board as stores for up to six months at a time. By the late 1750s this diet was supplemented with portable soup. The quality of food was also slowly improved; by the period of the Napoleonic Wars only about 1% of supplies were actually condemned as unfit to eat.
By the early eighteenth century, Victualling Yards of various sizes had been established alongside several Royal Naval Dockyards in Britain, including Portsmouth, Plymouth, Deptford and Harwich (though the latter was closed, along with Harwich Dockyard, in 1713). There was also a Victualling Yard at Dover (which had no Dockyard, but was used to service ships in the nearby anchorage the Downs); the Maison Dieu served as Dover's victualling store from 1544 until 1831, when the Yard closed.
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