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 1638-53] The New England Confederation. 23 some union between the various colonies. Negotiations for a federal union began in 1638, but it was not till 1643 that a confederation was actually formed. It included the four colonies of Massachusetts, Connecticut, New Haven, and Plymouth. The settlers at Aquedneck and Rhode Island more than once applied for admission, but were refused. This was reasonable enough, since their political status was wholly different from that of any of the four constituent members. The affairs of the confederacy were to be managed by eight commissioners, two from each colony. Each colony was to make a contribution propor- tionate to its population, to be levied as seemed good to itself. There were two obviously weak points in this system. The largest colony, Massachusetts, contributed more than the other members of the confederacy, but it neither possessed a larger share of control nor derived more benefit from the union than the rest. This begat a sense of injustice, which constantly showed itself in arrogant and high-handed treatment of the other confederates. Moreover the federal government had no means of acting directly on the individual citizens. They remained wholly and exclusively citizens of their own colony. The confederation was in fact no more than a permanent league. It is significant as showing how far the colonies had already learnt to regard themselves as independent communities, that throughout the business of confederation there was no reference to the government at home. The natural ascendancy of Massachusetts, an ascendancy due to her superior numbers and resources and in no way softened by the manner in which it was used, soon made itself felt. Two Frenchmen were engaged in dispute over the governorship of the province of Acadia; one, Charles de la Tour, turned to Massachusetts for help. It was given, though in a half-hearted and ineffectual fashion, without any consulta- tion with the other federated colonies, and in clear violation, if not of the letter, at least of the spirit of the federal constitution. Sub- sequently De la Tour applied to Plymouth, and was promised, though it is not certain whether he received, support. The proceedings of the two colonies were implicitly though not formally condemned by a resolution of the federal commissioners, to the effect that no federated colony should allow its subjects to volunteer in any cause unless with the approval of the commissioners. A few years later, it was rumoured abroad that the Dutch were stirring up one of the native tribes, the Nyantics, against the English. In 1653 seven of the eight com- missioners actually voted for declaring war on the Dutch and their supposed allies. One commissioner only, Bradstreet, stood fast for peace ; his colony supported him, and their influence prevailed. Again, in the following year, although Massachusetts actually consented to make war on the Nyantic Indians, yet the half-hearted spirit in which, under a Massachusetts captain, the campaign was conducted, gave rise CH. I.