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In other words, fleets have operated and fount not usually in the open sea, but just out of range of the land defenses. As the range of such defenses increased, the actions took place further at sea. During the Civil War the control of Hampton Roads rested in Naval forces. Though both the Federals and Confederates had batteries in place covering the roads, their range was not sufficient to reach warships anchored under these batteries. Hence, even at this late date we find the battle between the "Merrimac" and "Monitor" taking place in practically inland water.
The first fleets were composed of ships which were merely floating platforms for armies and were under the command of the Army Commander. The United States Navy was not made a sperate force until April 30, 1798, when the Navy Department was created by Act of Congress. For a period of nearly ten years prior to this time, the Navy can be considered as having been a part of the Army as the management of all naval affairs was under the control of the War Department.
From this time, the maintenance by the Army of adequate coast defenses of the permanent type was of the utmost importance to the Navy, but little was accomplished in providing them until after the war with Spain. It is not difficult to remember the pressure that was brought to bear upon the Government during this war by the principal cities along the Atlantic Coast, with the object of dividing up the fleet for their local defense, not the fight that the Navy Department had to make to keep it intact for its proper mission of seeking out and destroying the Spanish Fleet.

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