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Rh commend him, what brave things he did, and made all the neighbour princes fear him.” To Cromwell more than to any other British ruler belongs the credit of having laid the foundation of England’s maritime supremacy and of her over-sea empire.

Cromwell’s colonial policy aimed definitely at the recognition and extension of the British empire. By March 1652 the whole of the territory governed by the Stuarts had submitted to the authority of the Commonwealth, and the Navigation Act of the 9th of October 1651, by which colonial goods could only be imported to England in British ships and all foreign trade to the colonies was restricted to products of the exporting country, sought to bind the colonies to England and to support the interests of the shipowners and merchants, and therefore of the English maritime supremacy, the act being, moreover, memorable as the first public measure which treated the colonies as a whole and as an integral part of Great Britain. The hindrance, however, to the general development of trade which the act involved aroused at once loud complaints, to which Cromwell turned a deaf ear, continuing to seize Dutch ships trading in forbidden goods. In the internal administration of the colonies Cromwell interfered very little, maintaining specially friendly relations with the New Englanders, and showing no jealousy of their desire for self-government. The war with France, Holland and Spain offered opportunities of gaining additional territory. A small expedition sent by Cromwell in February 1654 to capture New Amsterdam (New York) from the Dutch was abandoned on the conclusion of peace, and the fleet turned to attack the French colonies; Major Robert Sedgwick taking with a handful of men the fort of St John’s, Port Royal or Annapolis, and the French fort on the river Penobscot, the whole territory from this river to the mouth of the St Lawrence remaining British territory till its cession in 1667. In December 1654 Cromwell despatched Penn and Venables with a fleet of thirty-eight ships and 2500 soldiers to the West Indies, their numbers being raised by recruits at the islands to 7000 men. The attack on Hispaniola, however, was a disastrous failure, and though a landing at Jamaica and the capture of the capital, Santiago de la Vega, was effected, the expedition was almost annihilated by disease; and Penn and Venables returned to England, when Cromwell threw them into the Tower. Cromwell, however, persevered, reminding Fortescue, who was left in command, that the war was one against the “Roman Babylon,” that they were “fighting the Lord’s battles”; and he sent out reinforcements under Sedgwick, offering inducements to the New Englanders to migrate to Jamaica. In spite of almost insuperable difficulties the colony took root, trade began, the fleet lay in wait for the Spanish treasure ships, the settlements of the Spaniards were raided, and their repeated attempts to retake the island were successfully resisted. In 1658 Colonel Edward Doyley, the governor, gained a decisive victory over thirty companies of Spanish foot, and sent ten of their flags to Cromwell. The Protector, however, did not live to witness the final triumph of his undertaking, which gave to England, as he had wished, “the mastery of those seas,” ensuring the English colonies against Spanish attacks, and being maintained and followed up at the Restoration.

Meanwhile, the first parliament of the Protectorate had met in September 1654. A scheme of electoral reform had been carried by which members were taken from the small and corrupt boroughs and given to the large hitherto unrepresented towns, and which provided for thirty representatives from Scotland and from Ireland. Instead, however, of proceeding with the work of practical legislation, accepting the Instrument of Government without challenge as the basis of its authority, the parliament immediately began to discuss and find fault with the constitution and to debate about “Fundamentals.” About a hundred members who refused to engage not to attempt to change the form of government were excluded on the 12th of September. The rest sat on, discussing the constitution, drawing up lists of damnable heresies and of incontrovertible articles of faith, producing plans for the reduction of the army and demanding for themselves its control. Incensed by the dilatory and factious proceedings of the House, Cromwell dismissed the parliament on the 22nd of January 1655. Various dangerous plots against his government and person were at this time rife. Vane, Ludlow, Robert Overton, Harrison and Major Wildman, the head of the Levellers, were all arrested, while the royalist rising under Penruddock was crushed in Devonshire. Other attacks upon his authority were met with the same resort to force. The judges and lawyers began to question the legality of his ordinances, and to doubt their competency to convict royalist prisoners of treason. A merchant named Cony refused to pay customs not imposed by parliament, his counsel declaring their levy by ordinance to be contrary to Magna Carta, and Chief Justice Rolle resigning in order to avoid giving judgment. Cromwell was thus inevitably drawn farther along the path of arbitrary government. He arrested the persons who refused to pay taxes, and sent Cony’s lawyers to the Tower. Hitherto he had been scrupulously impartial in raising the best men to the judicial bench, including the illustrious Matthew Hale, but he now appointed compliant judges, and, alluding to Magna Carta in terms impossible to transcribe for modern readers, declared that “it should not control his actions which he knew were for the safety of the Commonwealth.” The country was now divided into twelve districts each governed by a major-general, to whom was entrusted the duty of maintaining order, stamping out disaffection and plots, and executing the laws relating to public morals. They had power to transport royalists and those who could not produce good characters, and supported themselves by a special tax of 10% on the incomes of the royalist gentry. Enormous numbers of ale-houses were closed—a proceeding which excited intense resentment and was probably no slight cause of the royalist reaction. Still more serious an encroachment upon the constitution perhaps even than the institution of the major-generals was Cromwell’s tampering with the municipal franchise by confiscating the charters, depriving the burgesses, now hostile to his government, of their parliamentary votes, and limiting the franchise to the corporation; thereby corrupting the national liberties at their very source, and introducing an evil precedent only too readily followed by Charles II. and James II.

It was in these embarrassed and perilous circumstances that Cromwell summoned a new parliament in the summer of 1656. In spite of the influence and interference of the major-generals a large number of members hostile to the government were returned, of whom Cromwell’s council immediately excluded nearly a hundred. The major-generals were the object of general attack, while the special tax on the royalists was declared unjust, and the bill for its continuation rejected by a large majority. An attempt at the assassination of Cromwell by Miles Sindercombe added to the general feeling of anxiety and unrest. The military rule excited universal hostility; there was an earnest desire for a settled and constitutional government, and the revival of the monarchy in the person of Cromwell appeared the only way of obtaining it. On the 23rd of February 1657 the Remonstrance offering Cromwell the crown was moved by Sir Christopher Packe in the parliament and violently resisted by the officers and the army party, one hundred officers waiting upon Cromwell on the 27th to petition against his acceptance of it. On the 25th of March the Remonstrance, now termed the Petition and Advice, and including a new scheme of government, was passed by a majority of 123 to 62 in spite of the opposition of the officers; and on the 31st it was presented to Cromwell in the Banqueting House at Whitehall whence Charles I. had stepped out on to the scaffold. Cromwell replied by requesting a brief delay to ask counsel of God and his own heart. On the 8th of May about thirty officers presented a petition to parliament against the revival of the monarchy, and Fleetwood, Desborough and Lambert threatened to lay down their commissions. Accordingly Cromwell the same day refused the crown definitely, greatly to the astonishment both of his followers and his enemies, who considered his decision a fatal neglect of an opportunity of