Pirate companies also spurned the security of wage labour in
favour of profit sharing, operating on the principle of `no prey, no
pay'. At the end of a period of raiding the spoils were divided
amongst the band according to a formula agreed in advance when the
articles had been sworn to. In comparison with the merchant marine
or the royal navy during this period, the distribution of rewards
was egalitarian. The usual procedure was to grant ordinary crew
members one share in the loot, the captain up to five or six shares,
senior pirates such as the ship's quartermaster two shares, and
junior crew members half a share. Although the profitability of what
contemporaries euphemistically termed `going on the grand account'
can never be known, earnings from pirate raids boosted the
prosperity of Port Royal in Jamaica and proved an important source
of capital formation in the early development of this colony.
Pirate companies also proved themselves
capable of mutual cohabitation and co-operation in the pursuit of
common goals. During the period 1630-70 the main thrust of pirate
activity broadened from intercepting the increasingly well protected
Spanish treasure fleets to encompass the raiding of poorly defended
towns and settlements in Spanish America. Often pirate companies
were seen by colonial governors as a method of carrying out military
activity against a potential enemy in what was officially peacetime.
`Admiral, Henry Morgan, for example, was commissioned by the
governor of Jamaica to mount some well-documented attacks on Panama,
Carthagena and Porto Bello in the years following the formal signing
of the Peace of Breda in 1667. Pirates required a base from which to
launch operations of this magnitude and early pirate `colonies'
developed on the islands of Guadeloupe, West Hispaniola and at Port
Royal, Jamaica.
After 1670 pirate activity switched in emphasis away from raiding
towards robbery at sea, but although the act of holding up vessels
was normally carried out by individual companies there remained a
need for the provision of essential collective goods, such as mutual
defence. Secure retreats were needed to provision ships, recuperate
strength and to carry out maintenance. In order to preserve a
vessel's speed, for example, it was necessary to drag the ship on
shore and remove barnacles crusted on to the hull in a process known
as `careening'.
Pirate bases were located at Tortuga (Haiti)
and Nassau (Bahamas) where pirates instituted additional codes to
control relations between the several companies. These agreements
were similar to those developed by pirates operating from
Madagascar, on the North African coast, which renamed itself
`Libertalia' during the period of piratical control. Access to safe
bases was essential for successful piracy and may have enabled
established pirate leaders to form an effective cartel, preventing
the `over-fishing' of prizes by too many organised bands in one
area. Madagascar, for example, seems never to have been populated by
more than seventeen pirate vessels at any one time while the maximum
number of companies operating out of Nassau was around thirty. In
the early eighteenth century pirates congregated at New Providence
in the Bahamas and along the North Carolina coast in the vicinity of
the Cape Fear river. According to James Logan of Pennsylvania, there
were 1,500 pirates active along the American coast in 1717, of which
800 were based at New Providence.
The existence of piracy also owed much to organisational
weaknesses in the legitimate trading community. Although dependent
on one another, human beings also have a behavioural tendency to
cheat the system when possible. Traders offering the opportunity of
exchanging booty for food, clothing, guns, wine, women and song
formed commercial contacts as vital to the buccaneers as shopkeepers
prepared to handle stolen merchadise are to present-day thieves. In
the absence of ready access to legitimate society, pirates would
have had to behave as Robert Louis Stevenson's fictional pirates
behaved: by burying their treasure on remote islands recorded on
maps marked with a cross. The British authorities emphasised the
prevalence of these practices by introducing in 1699 and 1722 acts
that deemed traders aiding and abetting sea robbers as accomplices
to piracy itself, liable to the same penalties as its perpetrators.
Ironically, however, the British authorities at the same time
encouraged colonial merchants and traders to do business with
pirates by restricting legal trade between British plantations and
foreign colonies according to a body of commercial law termed the
Navigation Acts. Both the French and Spanish colonial powers also
passed similar restrictive acts that hindered legitimate exchange
between colonists of different nationalities. The lack of a legal
market provided pirates with the opportunity to create a black
market by seizing foreign cargoes of sugar, coffee and chocolate and
transporting them for disposal in British colonies. Pirates
successful in robbing treasure ships were also likely to be welcomed
by traders hoping to sell goods and services for cash payment. For
much of the eighteenth century Britain's colonies suffered from
shortages of currency, in part because the authorities resisted the
printing of paper money, rendering potential cash injections welcome
to a colony's tradesmen.
The Carolinas form a good example of colonial settlements with
conditions favourable to the growth of piratical activity. In the
first place the region was remote, lying some 600 miles away from
the nearest source of potential support in Virginia. Charleston, the
port capital of South Carolina, lived in fear of possible attack
from Spanish neighbours resenting the presence of English settlers
close to their territory. Secondly, prior to the development of rice
cultivation in the early eighteenth century, the Carolinas lacked a
major export staple capable of bringing prosperity to the colony.
Under these circumstances the pirate companies operating out of Cape
Fear were valued by colonists for their defensive value and for the
trade they brought to the region. Thirdly, it must be emphasised
that the resources available to the Carolina authorities to suppress
piracy, even had governors desired it, were limited. The upswing in
pirate numbers following the decommissioning of privateers in 1713
was less welcome to the maturing colony than before, but
deteriorating relations between colonists and native American
Indians in the Carolinas diverted resources away from policing the
coast towards internal security. Pirate companies based around Cape
Fear, of which that of Edward Teach or `Blackbeard' was the most
infamous, formed a menace to shipping along the North American coast
and were eventually suppressed only with the assistance of Virginia,
whose tobacco traders had suffered from pirate depredations.
Piracy in the sense of a failure to define and enforce property
rights also existed in the eighteenth century and helps explain the
prevalence of sea robbers in the Americas. Successful rovers
required detailed knowledge of the topography of intricate American
coastlines and of the prevailing wind systems on and off the major
trading routes. Most pirates operated close to shore and, therefore,
needed to know the location of hazards and the best places for safe
careening, for laying an ambush, or for taking refuge from pursuers.
Skilled navigators and explorers such as William Dampier, Basil
Ringrose, Lionel Wafer and William Hack all at one time cast in
their lot with pirate companies. These individuals possessed
knowledge and skills in scarce supply and chose to capitalise on
their talents by sailing with the pirates in return for a share in
the haul. The alternative method of making a return on their
expertise open to the explorers was to publish maps and guides for
sale, but once in the public domain discovery rents were likely to
be speedily dissipated by informal exchanges of information or the
`pirating' of maps by unscrupulous publishers.
There was one other factor of great importance
in explaining why piracy flourished in the late seventeenth-and
early eighteenth-century Caribbean. In 1726 the author of A
Discourse of the Laws Relating to Pirates and Piracies posed the
following interesting conundrum: `Supposing that in Time of Peace, a
thousand Pirates in different Parties were preying upon the Trade of
the Nation, is it not richly worth the Cost, for the Public to give
20,000[pounds] for the taking and destroying them?' Up until the
1720s this question had been answered in the negative: neither the
trading community nor the state had been prepared to allocate
sufficient resources for the effective suppression of piracy. The
threat of sea robbery imposes extra costs on traders: insurance
premiums rise, extra sailors and guns must be placed on board ship
for protection. As a result of increased transaction costs, less
goods will be traded at higher prices. Combatting the pirate menace,
however, also involves costs as naval forces must be commissioned
and the pirates hunted to ground. Prior to the 1720s, the potential
benefits of ridding the seas of pirates were judged too small in
relation to the likely costs. It must be remembered that the
Americas were the scene of European imperial rivalry during this
period with no possibility of a coordinated effort on the part of
Britain, France, Spain and Holland against piracy. Unilateral action
eventually drove pirates from the seas: one country, Britain,
assumed all the burden of costs, but benefited only in proportion to
its share of enlarged European trade with America.
Hitherto, instead of fighting piracy directly, a range of public
and private measures were deployed. The state adopted two principal
strategies for dealing with piracy: naval escorts and protection
money. Under the convoy system armed naval vessels escorted merchant
shipping in areas of the Atlantic and the Mediterranean at risk from
piracy. The cost of the escort was met by the merchant community in
the form of a convoy duty equivalent to about four times the
peacetime insurance rate along safe routes. One difficulty with this
policy was that it discouraged the navy from making a concerted
effort to hunt down pirate ships since naval vessels found escort
duty profitable, particularly in view of the opportunities it
offered to officers to engage in private trade. The other strategy
adopted by the state in the Mediterranean, although not the
Americas, was to try and pay off the pirates. Algerian pirates were
offered a bribe in return for a promise to let British ships
carrying special documents, called Mediterranean passes, proceed
unmolested.
The private sector also preferred to deploy measures designed to
reduce the uncertainties posed by the pirate menace rather than
subscribe funds or pay extra taxes in order to pay for direct action
against piracy. A well-developed insurance system enabled legal
traders to spread the risk of losing a vessel widely, thus reducing
the likelihood of personal bankruptcy. Merchants avoided owning
vessels outright over this period, preferring instead to take shares
in vessels and to split their cargoes between several ships rather
than putting all their eggs in one basket. It was also open to
merchants to increase manning levels on ships carrying particularly
valuable cargoes, or else to provide the ship's master with special
instructions in the event of meeting with a pirate foe. On occasion,
pirate bands. relied on surprise when attacking their prey and were
utterly uncompromising in their objectives. Such behaviour, however,
was more typical of the assaults on Spanish treasure ships and South
American settlements during the 1680s than of attacks on merchant
seamen in the British West Indies during the early eighteenth
century. It was more usual for pirates, on encountering merchant
vessels, to run up a hostile red or black flag and to invite the
ship to surrender. Negotiation at sea was possible and in this
manner some masters managed to keep their ship, their owner's cargo
and even an allowance for freight on the cargo of other merchants
that had been surrendered.
Such accommodations infuriated the British
authorities and in 1682 a law was passed obliging the master of a
ship of 200 tons and sixteen guns to fight boarders. Once on board,
moreover, pirate bands often approached common sailors and inquired
as to their treatment under the captain of their ship. On these
occasions, captains or masters found to have acted cruelly towards
their crew were punished by what the pirates described as the
`administration of justice' and afterwards the seamen were invited
to join the pirate community. The spread of this method of
recruitment provoked the authorities to pass an act in 1678
specifying harsher penalties for desertion at sea.
The period 1660 to 1730 formed the `golden
age' of piracy in the Caribbean. It is thought that some 5,000
pirates were active over these years, although probably no more than
between 1,000 and 2,000 at any one time. Included in this roll call
were Henry `Long Ben' Avery, the female duo of Anne Bonny and Mary
Read who sailed with John `Calico Jack' Rackham, Edward Teach - the
notorious `Blackbeard', Henry Morgan, William Kidd, Bartholomew
Sharp, Bartholomew Roberts and others of renown. The second decade
of the eighteenth century, however, formed the high watermark of
West Indian piracy and henceforth, although never extinguished
entirely from colonial waters, piracy was in general retreat from
this area.
Effective action against piracy was
handicapped at the start of the eighteenth century by the fact that
the definition of piracy and the penalties and procedures for
dealing with it were set down in legislation dating from the reign
of Henry VIII. Under the statute of 1513, felons accused of piracy
stood trial within the realm, a provision hopelessly impractical in
an age of colonisation when the scene of the crime was several
thousand miles beyond English soil. Greater state commitment to
suppress pirate activity was displayed by the enactment of
legislation that sought to enforce the rule of law in maritime areas
falling under the jurisdiction of the British crown. In 1699
parliament passed `An act for the more effectual suppression of
piracy', which delegated the authority to arrange trials for piracy
to Admiralty courts convened in the colonies themselves, provided
that the juries in each case consisted of at least seven persons.
This act also extended the definition of piracy to persons receiving
goods stolen at sea, or otherwise assisting pirates and rendered
them liable to the penalties specified in the original Tudor
statute, which included the possibility of death, loss of lands, and
loss of goods and chattels.
The 1699 act was kept in force by renewals in 1706 and 1713,
while an additional act passed in 1722 made it easier to try
accessories to piracy in local Admiralty courts, declaring that it
was illegal to, `trade with any Pirate by Truck, Barter, [or]
Exchange ... supply ... or ... anyways consult, combine,
confederate, or correspond with any Pirate'. In 1717, moreover, by
proclamation of George I, direct action was mounted against the
pirate menace. A taskforce of thirteen naval frigates was assembled
and charged with mounting a campaign against pirate vessels, while
colonial governors were also exhorted not to tolerate pirates
operating within their area of jurisdiction. By way of an incentive,
bounties of 200[pounds] were offered for persons succeeding in
bringing notorious pirate leaders to justice, while in December 1717
pirates were offered a general amnesty to entice crews to surrender
themselves to the authorities.
Although the aggregate cost-benefit calculation of removing
piracy from the seas remained much as before, the distribution of
the costs and benefits within the legal trading community had
altered in ways that made it increasingly likely that public
resources would be marshalled against sea robbers. The best known
instance of damage to private interests leading to calls for the
provision of public goods actually occurred in the East India trade,
when the government was lobbied into taking action by the
consequences of the capture of the daughter and treasure ship of the
Great Mogul in 1696 by Henry Avery. In response to the attack, the
Great Mogul threatened the English East India Company with reprisals
should English-born raiders commit any further outrages. When one
powerful trading organisation shares disproportionately in the harm
inflicted on legitimate commerce by criminals, it raises the
probability that the government will be persuaded to take action. In
the Caribbean arena other special interest groups similarly began to
feel that their interests were directly threatened by pirate
activity. The buccaneers in their early days had displayed strong
anti-Spanish tendencies and inflicted damage on Spanish South Sea
settlements. While Spain continued to claim, with Portugal, an
exclusive right to America under the papal Treaty of Tordesillas
(1494), the usefulness of the buccaneers to the British authorities
in diverting Spanish resources was clear. Under the terms of the
Treaty of Madrid in 1670, however, Spain finally recognised English
possession of the strategically vital colony of Jamaica and
permitted English ships freedom of movement in the Caribbean
provided each country agreed to refrain from trading in the other's
territory.
Whereas the second half of the seventeenth century had seen ten
major West Indian islands and the mainland colony of New York change
hands amongst European nations, the period between the end of the
War of the Spanish Succession (1702-13) and the Seven Years' War
(1756-63) was characterised by stable territorial possession. The
new climate of relative peace and security exercised influence on
Jamaica, where investment in sugar planting had been held back for
fear of possible Spanish invasion and turbulent political conditions
on the island. Following the Treaty of Madrid the governor of
Jamaica, Sir Thomas Modyford, who had been sympathetic towards
piracy, was replaced by Sir Thomas Lynch who adopted a policy of
suppression. As Jamaica's economy developed pirates ceased to be
valued as violent defenders of English interests bringing wealth to
the island in the form of plunder, and were perceived more as
uncontrollable elements that rendered property rights less secure
and who were capable of provoking Spanish reprisals in the form of a
clampdown on the lucrative clandestine trade that was developing
between Spanish and English colonists.
In 1660 the Royal Africa Company was chartered to supply the
Americas with slaves. Over the remainder of the century the attitude
of this politically influential organisation towards piracy
underwent significant changes. Soon after commencing business the
company attempted to break into the lucrative but illicit trade of
supplying slaves to Spanish America, but its aim was frustrated by
the better organised Dutch and Genoese merchants. Piracy was
initially viewed by the Royal Africa Company as a potential source
of advantage by disrupting the trade of its competitors and the
company even resorted to attempting to blackmail Spanish governors
with the threat of piracy unless their negroes were taken by their
colonies. By the later seventeenth century the company had adopted a
new corporate strategy in response to altered diplomatic relations
between England and Spain and was rewarded by a provision in the
Treaty of Utrecht (1713) which granted it the Assiento, an exclusive
contract to supply Spain's American colonies with 4,800 African
slaves annually for thirty years.
British slave traders who profited from the Assiento were anxious
to maintain good relations with the Spanish crown and also concerned
for the security of ships carrying payment for slaves delivered to
the Spanish West Indies. Since the Royal Africa Company's
shareholders included the king and prominent members of the royal
family, its potential influence on the shaping of government policy
towards piracy was considerable. In a similar vein, the increase in
piracy following the ending of both the War of the League of
Augsburg (1688-97) and War of the Spanish Succession (1702-13)
placed pressure on the institutions designed to protect traders from
its worst effects. London merchants who organised the insurance
market for ships and cargoes dispatched to the Americas responded to
increased uncertainty and risk by joining the coalition of forces
calling for action.
The decline in the incidence of piracy was associated with an
improvement in the prospects of former indentured servants. Although
the chances of gaining independence through land ownership remained
worse than had been the case over the first half of the seventeenth
century, the material standard of living increased and the life
expectancy of settlers rose in compensation. The founding of
Pennsylvania in the 1680s and its subsequent rapid growth generated
new possibilities of personal improvement in a region of America
that became known as `the best poor man's country'. In attempting to
suppress piracy in Nassau the British authorities adopted policies
that were tough on crime and tough on the causes of crime. Under the
governorship of Captain Woodes Rogers approximately 100,000[pounds]
was invested in the development of the island of New Providence
between 1718 and 1720. To encourage former pirates to give up
criminal activity Rogers offered an amnesty, free grants of land and
a minimum daily wage to persons willing to do work improving the
infrastructure of the port. In the Nassau experiment the public and
private sectors worked in partnership, most of the finance being
raised by a London syndicate and by Rogers himself.
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