In 1802 the British government decided that if use of the hulks was to be continued, imprisonment-for-profit was not the best policy to be followed. Aaron Graham was a young magistrate who had distinguished himself in his even handling of the naval mutinies at the Nore and at Spithead. He was appointed by a committee of Parliament to conduct a thoroughgoing inspection of the hulks, then asked to stay on as manager. He remained in this thankless situation for 13 years. He made a valiant effort, instituted several worthwhile reforms and drafted a comprehensive set of instructions that formed the basis for hulk management for years thereafter. In the end, however, the frustrations he encountered and the basic egregiousness of the Hulk system broke his spirit and, finally, his health.