rozen harbour in the Texel by French cavalry advancing across the ice. The Dutch fleet provided a substantial reinforcement to the French forces in Northern European waters, which were principally based at Brest on the Atlantic Ocean and whose main opponent was the Royal Navy's Channel Fleet. The location of the main anchorage of the Dutch fleet in the waters off the Texel prompted a reorganisation of the distribution of British warships in Northern European waters, with a new focus on the importance of the North Sea. With the Navy suffering severe shortages in men and equipment and with other theatres of war deemed more important, small, old and poorly maintained ships were activated from reserve and based in harbours in East Anglia, principally the port of Yarmouth, under the command of Admiral Adam Duncan. The 65-year-old Duncan was a veteran of the wars of the War of the Austrian Succession (1740–1748), the Seven Years' War (1756–1763) and the American Revolutionary War (1775–1783) and had fought at numerous engagements with distinction and success. Standing at 6'4" he was also noted for his physical strength and size: a contemporary described him as "almost gigantic".
The French Navy had suffered a series of one-sided defeats in the opening years of the war, suffering heavy losses at the Glorious First of June in 1794 and during the Croisière du Grand Hiver the following January. In late 1796, after prompting from representatives of the United Irishmen (a society dedicated to ending British rule of the Kingdom of Ireland), the French Atlantic Fleet launched a large scale attempt to invade Ireland, known as the Expédition d'Irlande. This too ended in disaster, with twelve ships lost and thousands of men drowned in fierce winter gales. Their ambitions frustrated, the representatives of the United Irishmen, led by Wolfe Tone, turned to the new Batavian state for support and were promised assistance in the coming year by a united French and Dutch fleet. A plan was formulated to merge the French and Dutch fleets and attack Ireland together in the summer of 1797. Tone joined the staff of Vice-Admiral Jan de Winter on his flagship Vrijheid in the Texel and 13,500 Dutch troops were equipped in preparation for the operation, the fleet waiting only for the best moment to take advantage of easterly winds and sweep past the British blockade and down the English Channel.
For the Royal Navy, the early years of the war had been successful, but the commitment to a global conflict was creating a severe strain on available equipment, men and financial resources. The navy had expanded from 134 ships at the start of the conflict in 1793, to 633 by 1797,[Note 2] and personnel had increased from 45,000 men to 120,000, an achievement possible only as a result of the impressment service, which abducted criminals, beggars and unwilling conscripts for compulsory service at sea. Wages had not been increased since 1653, and were usually months late, rations were terrible, shore leave forbidden and discipline harsh. Tensions in the fleet had been gradually rising since the start of the war, and in February 1797, anonymous sailors from the Channel Fleet at Spithead sent letters to their former commander, Lord Howe, soliciting his support in improving their conditions. The list was deliberately ignored on the instructions of First Lord of the Admiralty Lord Spencer, and, on 16 April, the sailors responded with the Spithead Mutiny: a largely peaceful strike action led by a delegation of seamen from each ship tasked with negotiating with the authorities and enforcing discipline. For a month the fleet remained at stalemate, until Lord Howe was able to negotiate a series of improvements in conditions that enabled the strikers to return to regular service. The mutiny had achieved almost all of its aims; increasing pay, removing unpopular officers and improving conditions for the men serving in the Channel Fleet and, ultimately, the whole navy.
While the upheaval continued at Spithead, Duncan had retained order in the North Sea Fleet at Yarmouth by the