Royal Instructions Cause Further Controversy
876. To Lord Hillsborough, 6 July 1771
877. To [John Pownall], [after 6?] July 1771
878. To Sir Francis Bernard, 8 July 1771
879. To William Palmer, 11 July 1771
881. To Lord Hillsborough, 18 July 1771
882. To [Sir Francis Bernard], 19 July 1771
A set of instructions concerning how the new governor should conduct himself usually accompanied the governor’s commission, but in Hutchinson’s case the instructions were not yet ready when the commission was dispatched. Therefore, since 9 March, Hutchinson had continued to follow the instructions issued to Sir Francis Bernard. Several parts of the new instructions caused more conflict with the legislature and provoked its most extreme statement to date, denying the legitimacy of the American Board of Customs Commissioners and the right of Parliament to raise revenue in North America.
Boston 6th July 1771
(No 8)
My Lord, I have the honour of receiving by the May Packet your Lordship’s Letter No. 7. with His Majesty’s Instructions to me as Governor of Massachusets Bay.1 I had then before me a Tax Bill and a Bill for Supply of the Treasury both of them incompatible with His Majesty’s 27th. Instruction. I informed the House of Representatives of this Instruction and that I could by no means give my consent to the Bills unless they would comply with the Requisitions in the Instruction. The heads of the Opposition are glad upon every occasion of new disputes and the next morning after my Message to the House I received an Answer which discovers the Influence they had to bring the House to the most open denial of the Authority of Parliament to appoint Commissioners of the Customs or to raise any monies from the Colonies.2 It is not the first time this Principle has been avowed. It has for some years been gaining strength among the People in this and other Colonies which made it less difficult for the Representatives of the people of this Province to avow it in this open and publick manner.
Notwithstanding the Principle had been propagated, there has been of late a disposition in the body of the people to be quiet and to make no opposition to the Acts of Parliament which are now in force. I will do all in my power to counteract the Party who will take fresh courage and use their utmost endeavours to raise new disturbances. I have not had time to judge what success they will meet with.
I received the Answer of the House yesterday morning and as soon as I could make a short addition to a Speech I had before prepared for the two Houses I ordered the Court to be prorogued.3 I will cover such papers as can be prepared before this Ship sails and as soon as the Laws which are passed can be transcribed or printed I will send them according to my Instructions. I have the honour to be most respectfully My Lord Your Lordship’s most humble & most obedient Servant,
RC (National Archives UK, CO 5/760, ff. 188–89); at foot of letter, “Honble. the Earl of Hillsborough”; docketed, “Boston 6th. July 1771 Governor Hutchinson (No. 8) Rx 19th. August D——13.” AC (Massachusetts Archives, SC1/series 45X, 27:190–91); in WSH’s hand. SC (National Archives UK, CO 5/768, ff. 206–08); docketed, “Boston 6 July 1771. Governor Hutchinson. (No 8.) Rx 19th August”; at foot of letter, “Inclosures No. 1. Message from the Govr. to the Assembly, with their Answer: 2. Speech of the Governor to the General Court.” SC (Houghton Library, Sparks 43, 1:133); docketed, “Thos: Hutchinson to the Earl of Hillsborough”; excerpt of first two paragraphs only. Enclosures to RC: TH to the House of Representatives, 4 July 1771 (National Archives UK, CO 5/760, f. 190); House of Representatives to TH, [5 July 1771] (ff. 190–91); TH to the House of Representatives, 5 July 1771 (ff. 192–95).
Boston [after 6?] July 1771
Duplicate
Dear Sir, I received the King’s Instructions the 3d in the Evening whilst the Bills which had passed the two Houses this Session lay before me for my consideration. The Tax bill and the bill for Supply of the Treasury, which always provides a conditional Tax I could not give my consent to without a breach of the 27th Instruction.2 This laid me under a necessity of communicating the Instructions for I should have made myself obnoxious to the whole Province if I had refused two such important Bills without assigning the reason. I prepared them for the Instruction by a Message to shew the reasonableness of it but it was to no purpose. The Incendiaries rejoiced at a new Subject to make a Grievance of and drew up a most extravagant Message in Answer which they persuaded the majority of the House to agree to.3 Most of them have sinned through ignorance not having penetration enough to see the force of several criminal Parts in it which it is impossible should escape notice and censure in England.
The Commissioners now wish they had taken no notice of the small Taxes they paid.4 I am sensible there is no pretence for their being taxed but the sum they were taxed was so inconsiderable that it might have passed as one of the minima which are not worth regarding and, without inquiry, it would not appear from their manner of taxing that the Assessors considered the Salaries. The friends of Government are under concern because it stops us in our course to that state of Tranquility to which we have very near attained & which I hope it will only retard and not finally prevent and, they say the Object was not worth pursuing. It is too late to recall the application of the Commissioners and we are now to look forward. I am of opinion from the cast or genius of the people of the Province and from the obstinate resistance made on Governor Burnets Administration that they would refuse for at least two or three years to comply with this requisition notwithstanding the thing required is in it self so reasonable.5 The delay of any provision for the support of Government for so long a time must occasion distress to many persons and, in order to raise or increase aflame the Faction will attribute all to the Commissioners.
I would not presume to prescribe, but I beg leave to suggest a thought upon measures to relieve us under this difficulty. If the Instruction could have been suspended consistent with the honour of Government I should have wished for that; if not I think nothing ought to be omitted to enforce a compliance with it as soon as possible, and I know of nothing more likely to do it than an Act of Parliament declaring all Acts passed in the Colonies for laying Taxes on the Salaries of the Servants of the Crown whose Offices do not peculiarly relate to such Colonies respectively to be null and void, that all persons who shall carry or attempt to carry those or any other Acts so far as they are declared null into execution shall be subject to Penalties or incapacities, and that any Governor who shall give his consent to any Bill for such purpose shall be subjected to such Penalty as may be thought proper. If this is done the Assembly will despair of ever getting the Victory. The greatest Objection to it is that the Commissioners would still be the Objects of the resentment of the people, but this objection will always remain against every measure except giving up the point.
I think it will not be said to be too small an Affair for the consideration of Parliament for the peace of the Province may depend upon it and the disorders of this Province may affect the peace of all the rest. I could not satisfy my self without making these suggestions and submitting them for consideration having no view but what is for His Majesty’s Service. Measures more proper may probably occurr. I hope we shall not be left without some further measures than meerly my refusal to give my consent to the Act.
I have prorogued the Court to the 4th of September. I do not intend to meet them at that time. Before another Session I shall be very glad to receive directions for my conduct & wish to hear by the first packet and other opporutnities after receipt of these advices. If I should have directions further to prorogue the Court until there shall be a determination of Parliament or to dissolve it, should it not be by the formality of an Order of the King in Council and this express denial, by the House, of the Authority of the Act of Parliament appointing Commissioners giving as a reason for it and an intimation of its being a departure from and forfeiture of their Charter. If no publick notice is taken of this most insolent message it will encourage the other Colonies to make the same declaration.
In what I now write I have sincerely at heart the quiet peace & real Interest of the Province, nevertheless if it should be known here it would Probably raise such Prejudices against me as would Prevent me from accomplishing what I so earnestly desire. I have concealed it from every person here & I must beg you to communicate it to My Lord Hillsborough only.
My Instruction which relates to the Acts of the Council and House I have not yet made known to them. The last day of the Court, when I came to Council, I found them upon a motion made by Bowdoin, as I supposed, for recording all their Letters to & from their Agent in a seperate Book. I advised them to delay the Question as it could be very material whether it was done now or another time. I had Instructions which I should be obliged to communicate to them for their government and they complied with my proposal.
I have been pressed to consent to Lotteries for publick uses but have always given for answer that I was restrained by a late Instruction. I do not find it in my present Instructions. As they are under a new Commission would it not have been proper to be inserted if intended to be observed?
The Affair of the Eastern Country has been treated with great neglect or rather contempt, for in a letter wrote to their Agents the two Houses seem to justify the Settlers. I will procure if I can a copy of it to inclose to you.
The House also passed a Vote for renewing or continuing the Grant of the 12 Townships which was not concurred by the Council, but both Houses passed a Vote for confirming the Township called Machias by bounds agreeable to a plan presented to which I refused my consent.6
Mr. Scammel one of the Inspectors left this Town about a month ago to go down to that Country. I gave him a Letter to the Commanding Officer at Fort Pownall to afford him all assistance by procuring Indian Guides or some of the Garrison who are acquainted with the Woods.7 He gave me no encouragement that he should be able to make any progress in marking out a District this Summer and I advised him to take a general Survey of the condition of the Country & to make a partial return in season to be laid before Parliament. I now despair of being able to prevent that whole Country from being overrun with settlers without any Title & can see no other way of doing it but by its being under another Government & all settlers being subjected to a Quit Rent. I hope to be able to keep the people in order the Council being disposed to join with me in measures to that purpose. Fort Pownall which is in that Country has never had a s[maller] Garrison than 20 Privates. The House voted this Session to reduce it to 10. Upon a Message from me they added 5 more which was all I could obtain. This did not spring from the party against Government but from8 the Penurious spirit of the House in general.
I must Repeat my Request that I may have directions by the first opportunity and that I may have a private Letter from you [. . . .]
AC (Massachusetts Archives, SC1/series 45X, 27:193–96). Contemporary printing: Boston Gazette, 20 November 1775.
Boston 8 July 1771
(No 6)
Dear Sir, I have not heard from you since the last of March. I should have finished one Session with more decency than common if the Mail from New York had not brought my Instructions the night before I intended to have signed the publick Bills. By one of my Instructions I was restrained from signing the Tax & supply Bill unless the Commissioners & other Officers who are not peculiar to this Province could have their Salaries excepted. This caused an altercation of two days and at length I prorogued the Court without given my consent to the Bills. Nothing can be more criminal than the Message of the House. If this does not incense Parliament I dont know what will.1 This will keep us in a flame two or three years. Can no measures be thought of to extinguish it? There is no reason they should be taxed but what they paid was a trifle, and they have lost friends by complaining. I did not dare break through the Instruction. I wish it had been retarded another post. I should have had time to represent the difficulties it would occasion before I shall have occasion to give my consent to another Tax Bill. I hope the next Ships will bring me your Letters. I am Dear Sir Your faithful & most Obedient Servant,
AC (Massachusetts Archives, SC1/series 45X, 27:191–92); at foot of letter, “Fra Bernard”; in WSH’s hand.
Boston 11 July 1771
Sir, The loss of Smith will take away all the profits of the preceeding year for so much Tea has been imported from Holld that the Importers from Engd. have been obligd to sell at little or no profit. I advisd my sons not to keep their Tea for if it falls in Engd as I think it must there might have been great loss. The Dutch traders it is said had their first Tea at 18d sterling the last at 2/. Either is much cheaper than from Engd & then they save the 3d duty here. The Company must keep their Teas nearer the price in Holland. The Consumption is prodigious. I think 100 Chests to begin to ship by first ships may be sold by my sons in the Fall & Winter especially if it shall have fallen & not like to be lower in England. I shall be content with your judgment.
The Commissioners here think that the Commissioners in London upon a Memorial & proof of the Teas in Smith being lost will pay the drawback altho there can be no certificate of the duty here.1 If any thing can be done you will do it if not we must be content. Equity I think is in favour of the demand. I am Sir Your most Obedient Servant,
AC (Massachusetts Archives, SC1/series 45X, 27:203); at head of letter, “Mr Wm Palmer.”
Boston 17 July 1771
Dear Sir, Having wrote to you by the last Ships upon the Subject of His Majesty’s 27th Instruction it may not be amiss to add that the Speaker yesterday let me know that a Committee of the House were preparing a Letter to go by this Ship to their Agent Doctor Franklyn directing him to apply for the withdraw of the Instruction & giving this reason that the Commissioners had been taxed but inconsiderable Sums not equal to any of the other Inhabitants in proportion to their Estates.1 If they should urge that the Salaries had not been taxed, under the Law as it stood, I see no difficulty in my being allowed in answer to such a representation to sign the Bill in the old form. At present the Commissioners are taxed so moderately that I know not how it appears that they are taxed for their Salaries for the Assessors set what Sums they think reasonable upon their Income & if other Persons who have less Income than some of the Commissioners exclusive of their Salaries, are taxed as much as they I dont know how it can appear that any regard is had to the Salaries. If any such way the honour of Government can be saved it will be much for our quiet here I do not however wish to purchase my own ease at the expence of the Authority of Government & whatever his Majestys Pleasure may be I shall strictly conform to it.
I asked the Speaker what reason he had to suppose Mr Franklyn would be admitted to appear for them at any of the Boards.2 He answered that although their appointment had been refused to be received yet that Mr Franklyn had assured them he should always be heard when they had any thing to transact. The House & Council both are so irregular that neither have passed any vote for a new appointment of Agents but rely upon the Votes of last year before the dissolution of the last Assembly. If it be thought best to exclude them from all appearance this seems sufficient exception without any other.
When the Speaker had represented the disorder the Province would be in for want of supply and for the increase of prejudice against the Commissioners and that he was sorry, that when we seemed to be upon the border of peace & good Order, that any thing should interrupt it, I asked him how it could consist with order for the House to pass such a thing as they called a protest & whether he imagined it possible for Parliament to pass over that and their open denial of the Authority of Parliament, when they declared they knew of no Commissioners of the Customs in America, and that I was very sure sooner or later they would bring the wrath & indignation of Parliament in its full force upon their heads. He made me no reply. I had heard that he had expressed his dislike of one or both those proceedings.
I am willing to furnish you with every little Anecdote which may give you a more full Idea of the state we are in. If it should be thought necessary to strike at the root of all the disorder in the Colonies the denial of Parliamentary Authority, Expedients for present peace & Order are scarcely worth thinking of, but if it be judged advisable to defer this grand trial, which will come on one time or other, it seems necessary to be contriving every expedient to maintain order without making concessions to the Opposition of this Authority. I have had hitherto great advantage from the firmness of the Judges of the Supreme Court who treat this new doctrine as it deserves. In such important cases I wish not to depend wholly upon my own judgment but to have as much advice & direction as may be which causes me to be more circumstantial in my Accounts of our proceedings and of the state of the Province than I otherwise should be.
I forgot when I mentioned the Agents to tell you I would inclose copy of an Account sent by Mr Debert Executor to the House for the 4 1/2 service. You see by one Article the printing of Junius Americanus what part of his Services were.3 I am,
The arrival of a Brigantine from London the last Evening with the Kings most Excellent Speech at the prorogation of parliament and the general prospect of quiet mortifies much the Enemies of Government.4
AC (Massachusetts Archives, SC1/series 45X, 27:199–202); in WSH’s hand.
Boston 18 July 1771
(No 9)
My Lord, I have communicated, at a General Council, His Majestys 5th & 6th Instructions and have orderd copies thereof to be entred upon the Council Books.1 The Council do not pretend any Right to meet without the Governor but say it is a hardship to be obligd to determine suddenly upon any matters of Importance which may be laid before them. I told them I knew no better precedent than the practice of His Majestys Council in England and when any matters came before them which appeard to me proper to be considered in that way, I should have no Objection to a reference to a Comittee of Council who might consider & make report to me in Council, but the Committee should have no power to act upon any thing more than was committed to them nor should any of their doings be of any validity until reported and accepted. This they said was all they desired and, unless His Majesty shall disapprove of it, I shall as often as there may be occasion admit of this practice.
The other Instruction, which relates to the Agents for the Council & House of Representatives, I endeavoured to convince them was only a Restraint upon them from departing from their Constitution which they had done in this affair of the Agent as much as it was possible for them to do in any case whatsoever,2 for they not only appointed a person to be their Agent without any authority so to do but in their Legislative capacity, whilst the General Court was sitting, substituted a Committee to correspond with and instruct this Agent in the recess of the Court, which was, in effect, continuing one branch of the Assembly after the Governor had, by his Authority, declared their discontinuance and I had no doubt the Instruction would have extended to this practice if it had been known but, being contrary to all rules of Parliamentary Proceedings, I supposed it was not suspected. I advised them to proceed no further in this way which they could say nothing to justify.
The Correspondence which both Council & House carry on with their Agents has contributed much to keep up jealousies in the Province of designs to oppress and inslave the people. I hope when the Agents find they are not like to be paid this Correspondence will cease.
I send under this cover a News paper3 which gives an Account of Mr Tryon’s arrival and reception at New York.4 I have the honour to be with the greatest respect My Lord Your Lordships most humble & most obedient servant,
RC (National Archives UK, CO 5/760, ff. 196–97); docketed, “Boston 18th. July 1771 Governor Hutchinson (No. 9) Rx 24th. August. D——14.” DupRC (National Archives UK, CO 5/894, ff. 152–53); marked, “Duplicate”; docketed, “Massachusets. Duplicate of a Letter No. 9 from Govr. Hutchinson to the Earl of Hillsborough, dated July 18. 1771, relative to the New instructions concerning the Council & Agents for the province. O. o. 22. Read Decr: 12. 1771.” AC (Massachusetts Archives, SC1/series 45X, 27:202, 204); SC (National Archives UK, CO 5/768, ff. 208–10); docketed, “Boston 18th. July 1771. Governor Hutchinson. (No 9.) Rx 24th August”; at foot of letter, “Inclosure The Massachusetts Gazette.” SC (Houghton Library, Sparks 43, 1:134); docketed, “Thos Hutchinson to the Earl of Hillsborough”; excerpt of second and third paragraphs only. SC (Houghton Library, Sparks 10, 4:17); at foot of letter, “[O.o. 22. Read 21 Decr. 1771.]” (brackets in original); docketed, “Hutchinson to Hillsbro.” Enclosures to RC: Massachusetts Gazette and Boston Weekly News-Letter, 18 July 1771 (National Archives UK, CO 5/760, ff. 198–99); The Proceedings of the Council, and the House of Representatives of the Province of the Massachusetts-Bay, Relative to the Convening, Holding and Keeping the General Assembly at Harvard-College in Cambridge: And the Several Messages Which Passed between His Honor the Lieutenant Governor and the Two Houses, upon the Subject (Boston: Edes & Gill, 1770) (ff. 200–40); A Continuation (Boston: Edes & Gill, 1770) (ff. 241–74).
Boston 19 July 1771
Dear Sir, I expected until yesterday that you had been between two & three months in the Country pursuing your plan which in one of your late Letters you acquainted me with but the Secretary tells me Mr Waldo writes him by Perkins that you had taken a house at Kensington and designd to remain near the Court another year.1 I shall therefore hope you will continue your Correspondence as before & you shall not complain of neglect on my part.
I was in hopes the beginning of the last Session to have removed all obstacles to the Courts return to Boston. I had told the principal Members of both sides I never would ask for leave to remove the Court whilst they denied the Kings Right to order it to be held where he pleased and they framed a Message to me desiring me to carry it to Boston meerly because it was inconvenient for it to be held anywhere else. I closed with them & promised to represent the Inconveniencies they mentiond to His Majesty. Adams was alarmed & declared he wished to have the Court at Boston but not upon my terms & moved for a Comittee to answer my message & a Comittee was appointed. He chose to avoid an Address or Message in their same form & reported a foolish thing under the name of a Protest to be entred upon the Journal which a majority swallowed down without knowing the meaning of it. The House, in general, still continued desirous of keeping clear of further controversy, but the day before I intended to prorogue the Court I received the Kings Instructions one of which restrained me from consenting to the Tax & Supply Bills because the Salaries of the Commissioners of the Customs were subjected to the Tax. You will see in the papers I have sent you my Message upon the Subject & the rash answer of the House.2 These Proceedings will I fear retard the quiet & order I hoped for. Unless something extraordinary should require the contrary I shall continue the Court upon prorogation until I receive answers to the Letters I have wrote.
In any other Affair except what relates to Comissioners I should meet with no difficulty but the Sons of Liberty will use every Act to inflame the people against them as the cause of all the clogs upon the Affairs of Government & I have no expectation of their passing any Bill for Supply of the Treasury at least for more than one year to come & I know not how much longer. I am told Paxton’s whole Tax to the Province, last year for what they call personal Estate & Faculty which includes Salary & all his other Income did not amount to Three pounds sterling and what he paid to the Town & County I suppose could not be much more I mean to each of them. I wish they had staid until we had been more settled before they complained. I think they wish so themselves. However I must do the best I can. If I had to do with reasonable men I should convince them the Instruction was reasonable but I have not & they seem in general to be as wrong headed in this matter as in any other which has heretofore been the subject of dispute.
There has been a total neglect of the Eastern Country & if every Acre should be entred upon between Kennebec & St Lawrence the House would not interpose. I am sending a Committee of Council to Machias to inquire into the conduct of a new Justice who is complained of by the riotous Inhabitants for being severe & arbitrary.3 I do not imagine there are any grounds for the complaint but this is the only pretence I could find for the Councils interposing & I expect at the same time to obtain a more full knowledge of the general state of the Country.
The Inspector of the Woods for that District is now in actual Service there & I suppose will make a partial return before Parliament meets again.4 I am with the most sincere regard & esteem Dear Sir Your faithful & most Obedient Humble Servant,
AC (Massachusetts Archives, SC1/series 45X, 27:197–98). Contemporary printing: Boston Gazette, 27 November 1775 (third paragraph only).
Boston 29. July 1771
Dear Sir, Allow me to forward a Letter to Mrs Rogers under a cover directed to you & you may command me on the like or any other occasion.1
I have no Publick Letters from England since the May Packet. All our private Letters intimate a greater prospect of Tranquility both at home & abroad than there has been for some years past. I hope it will spread to the Colonies. Faction will die last in this Province. The flame will expire when there is no more fewel.
The papers take no notice of any concern which Lord Dunmore had in Mr Tryons Reception. The rumour is that there has been a great misunderstanding Mr Tryon not being expected so suddenly & Ld Dunmore hoping to be continued at New York.2 I am with very great regard & esteem Your Excellencys most Obedient & Humble Servant,
AC (Massachusetts Archives, SC1/series 45X, 27:207); at foot of letter, “His Excelly Gov Wentworth.”