The colour system expanded alongside a Royal Navy that had hundreds of ships and squadrons around the world. Its notional establishment of three admirals, three vice admirals and three rear admirals no longer matched a global service with many separate commands. Admirals commanded fleets at sea, directed dockyards and facilities, and sometimes served as colonial governors. Wounds and other limits on active service further increased the number of men required on the flag list. Those duties explain why a nominally simple three-squadron structure required so many senior officers by 1812.
Notable Point · 3:42-5:17
Admirals as global commanders and administrators
The growth in flag officers reflected a worldwide navy whose admirals commanded fleets, dockyards, stations and other administrative responsibilities.