From The Age of Fighting Sail: The Story of the Naval War of 1812, by C. S. Forester (Doubleday, 1952; eNet, 2012), Kindle Loc. 1237-1266:
American privateering had proved itself offensive beyond all expectation; it is possible that it might have been more offensive still. Certainly there were disadvantages regarding the system, of which the harassed British Government was not aware. It skimmed the cream of American seamen; Hull had no sooner taken up his new appointment in New York than he complained that such was the rush to enter into and to fit out privateers that he found it hard to find seamen for naval vessels or workmen for navy yards. It consumed stores and supplies of which the Navy felt the need. Competition between individual shipowners was liable to accentuate shortages and force up prices. But these serious disadvantages were only indicative of others, and any attempt to remedy all or any of them confronted the Administration with problems which it was peculiarly unfitted to solve.
Privateers sought profits; the national welfare was only incidental. Other privateers were business competitors, and only secondarily brothers-in-arms. It could easily happen that a successful owner would endeavour to preserve his trade secrets and to keep his knowledge of the enemy’s methods to himself. Undoubtedly he would seek prizes of commercial value; and the facile argument that the greater the commercial loss to the enemy the greater the effect on the war did not hold water. The capture of a homeward-bound East Indiaman would mean enormous prize money, and long faces in the City; but the capture of the coasting brig with Wellington’s twenty tons of shoes on board, although it would mean small prize money, would immobilize England’s one army in the moment of victory. There could be little doubt as to which capture would have the greater effect in inducing the British Government to consider peace on America’s terms; unfortunately there could be little doubt as to which capture a privateer captain would endeavour to make—unless he were both exceptionally patriotic and well informed, and prepared to ignore his owner’s demand for dividends and his crew’s clamour for prize money. Even in the Royal Navy there were continuous hints and complaints that captains and flag officers were tempted to neglect military duties in order to seek prizes, although the orders they received were backed by all the machinery of the Articles of War and with the death penalty looming in the background.
The question of discipline in privateers was always a serious one. The ship’s articles gave the captain considerable powers, and many captains were able to use those powers to the full, yet there were exceptions. Although there are accounts of desperate actions fought by privateers, there are plenty of accounts of only feeble resistance being offered, and sometimes none at all—more than one English captain reports coming alongside an American privateer to find the decks deserted, the whole crew having run below. The cynic may wonder at the strange quirks of human nature which lead men to give their lives for something as unsubstantial as the honour of their service while they are not prepared to risk them for solid cash, and yet, while wondering, the cynic must admit the existence and the power of those motives; the man who has struck a bargain to go privateering is likely, when faced by the imminent and unimagined danger of hard knocks, to plead misrepresentation and to regret and to go back on his purely commercial bargain.
The privateersman, even the veriest landsman, having entered in return for a share in the proceeds of a voyage, was likely to arrogate to himself the rights of a shareholder and to claim a voice in the management, especially with the tradition of the town meeting behind him; the tendency was almost inevitable and subversive of discipline, and it called for leadership on the part of the captain—and successes as well—to counteract it. The best of privateering captains had to make allowance for the possible restiveness of his crew in conditions of disillusioning hardship and disappointment.
Only the most radical measures on the part of the Administration could have minimized these disadvantages of the privateering system.