The Revolution brought no considerable alteration in the mere administrative machinery of the navy. From that time forward the office of Lord High Admiral was habitually put into commission, but the change was made for the purpose of finding the greatest number of places for Parliamentary supporters, and was in substance not very different from the method adopted by the Commonwealth, by Charles I., and by James I. It was of more importance that the reign of William III. saw the complete establishment of half pay. The later Stuarts had granted allowances to flag officers and a few captains, but the Parliament of the Revolution first regularly provided for the support of a body of officers of all commissioned ranks when not in active service. This also was inevitable if the country was to maintain a regular staff for the fleet. It was neither possible to maintain the navy continually on a war footing, nor to disband the whole corps of officers so soon as peace was signed, and trust to forming another when the need had arisen.
The establishment made by King James II. in 1686 fell with its maker. The handsome table-money allowance was not paid after the Revolution, and the officers were thus thrown back on the old scale of pay. This meant that the captain of a first-rate who had flattered himself with the hope of receiving £535, 18s. 4d. per annum found that he was in fact only entitled to £285, 18s. 4d. Captains of the lesser rates were disappointed in proportion. At the same time the regulations depriving them of convoy money, and restricting their chances of casual gains, were more strictly enforced. The trading classes had won great power by the Revolution, and could put pressure on the House of Commons, and they were not unnaturally eager to defend themselves against extortion. Their case was good, but the grievance of the naval officer was not the less genuine. Yet the loss of King James’s establishment was probably not much regretted by the navy at large, since it benefited the captains only. Other ranks had their grievances. The complaints of the sea officers were so loud and persistent that at last the Government was compelled to do them some justice. By an Order of the Commissioners of the Admiralty dated 14th February 1694, it was established that the sea pay “of the flag officers, commanders, lieutenants, masters and surgeons of their majesty’s ships be increased to as much more as it is at present.” As a set off to this the number of servants they were entitled to take to sea at the expense of the Crown was reduced. With this provision for the officers on active service came the formation of a half-pay list. It was somewhat arbitrarily constructed. The benefit was confined to “all flag officers and commanders of ships of the first, second, third, fourth and fifth rates, and of fireships, and also the first lieutenants and masters of the first, second and third rates who have served a year in ships of rates respectively, or have been in a general engagement with the enemy, and shall have performed their duties to the satisfaction of the Lord High Admiral of England or the Commissioners executing that office.” These were to “be allowed half pay during their being on shore in time of peace at home.”